A policy document that is put out by the Government for public comment and feedback.
How to Identify Author
In this case the author will be the segment of the government looking for comment on the forth-coming policy proposal. The name of this entity will typically be noted on the cover page of the document, its headers, and the body of the text.
How to Identify Publisher
The publisher is the same as the author in this case.
Node Naming Convention
Use title as given.