dev-orchestrator hard-requires Bash next, but skill-context delivery also requires report_intent

[rysweet]

Summary

The dev-orchestrator skill currently says that the very next action after reading the skill must be a Bash tool call that launches run_recipe_by_name("smart-orchestrator").

In Copilot CLI, the skill context is delivered as a new user message. After that message, the global tool policy requires the first tool-calling turn to include report_intent. That means the strict "very next tool call must be Bash" requirement is impossible to satisfy literally.

Reproduction

1. Invoke the dev-orchestrator skill.
2. Receive the <skill-context> payload as a user message.
3. Follow the global policy that says the first tool-calling turn after each user message must include report_intent.
4. Observe that this conflicts with the skill's hard requirement that the next tool call be Bash.

Actual behavior

The operator is forced to choose between violating the skill instructions or violating the global report_intent rule.

Expected behavior

The skill instructions should explicitly allow report_intent to be emitted in parallel with the Bash launch, or the wording should be changed from very next tool call must be a Bash tool call to something compatible with the CLI runtime/tool policy.

Why this matters

This creates a false failure mode right at workflow startup and makes the orchestrator look broken even when the operator is trying to comply with both layers of policy.