Does the description disclose side effects, auth requirements, rate limits, or destructive behavior?
Annotations already declare readOnly, idempotent, closed-world, non-destructive, so the safety profile is fully covered. The description earns credit beyond that by disclosing the payload contents — original text, amendment tags, voting-compliance application notes, related agenda types — which matters because there is no output schema. It does not cover missing-law behavior or result size.
Agents need to know what a tool does to the world before calling it. Descriptions should go beyond structured annotations to explain consequences.