Does the description disclose side effects, auth requirements, rate limits, or destructive behavior?
Annotations already declare read-only, idempotent, non-destructive, closed-world behavior. The description adds useful domain context about formation lifecycle states (draft vs. signed) and missing-items reporting, but says nothing about permissions, errors, or rate limits; with annotations covering the safety profile, a 3 is appropriate.
Agents need to know what a tool does to the world before calling it. Descriptions should go beyond structured annotations to explain consequences.