Break the bus work down, measured, in dependency order

Counting the surface first changed the plan twice: the genesis bed cannot run until the links exist, so it belongs to step 4, and there is no conformance suite to recapture — step 3 builds one against the current bus before moving it. Both corrections are recorded in the breakdown rather than edited into ADR 0115. Also indexes design 25, which was never listed.
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 | [`22-the-work-ahead.md`](22-the-work-ahead.md) | Everything decided and not yet built, in dependency order, each phase ending at a run | [ADR 0074](../../02-DECISIONS/0074-the-wire-is-specified-not-the-types.md), [ADR 0075](../../02-DECISIONS/0075-two-stores-and-which-provides-what.md), [ADR 0014](../../02-DECISIONS/0014-no-npm-workspace.md) |
 | [`23-choosing-a-provider.md`](23-choosing-a-provider.md) | Which of several providers of a kind serves a consumer, and when a module carries its own instead | [ADR 0084](../../02-DECISIONS/0084-which-provider-serves-a-consumer.md), [ADR 0027](../../02-DECISIONS/0027-a-provision-names-what-the-consumer-is-coupled-to.md) |
 | [`24-the-secrets-vault.md`](24-the-secrets-vault.md) | The module that owns a secret — a `secret` provision, and the boundary of what it owns | [ADR 0085](../../02-DECISIONS/0085-a-secret-is-a-provision.md), [ADR 0031](../../02-DECISIONS/0031-the-control-plane-authenticates-nobody.md), [ADR 0048](../../02-DECISIONS/0048-a-provider-creates-the-credential-the-mesh-minted.md) |
+| [`25-the-bus-on-nats.md`](25-the-bus-on-nats.md) | **Proposed.** The architecture of the mesh's bus on NATS: what rides which subject under which guarantee and whose account, how a node joins, how a person reaches a tool, and how the mesh moves from the bus it has | [ADR 0106](../../02-DECISIONS/0106-the-bus-is-nats.md), [ADR 0115](../../02-DECISIONS/0115-the-bus-is-built-in-five-steps.md), [ADR 0043](../../02-DECISIONS/0043-a-module-broker-account-is-scoped-by-emits-and-consumes.md), [ADR 0083](../../02-DECISIONS/0083-one-push-leaves-the-mesh-consistent.md) |
 | [`26-the-seats.md`](26-the-seats.md) | **Proposed.** What a mesh can have one of, who fills each, and a seat's holder answering for the provision it delivers — including the `git` seat a build's source can live on | [ADR 0110](../../02-DECISIONS/0110-a-seat-is-a-module-assignment-from-a-closed-set.md), [ADR 0111](../../02-DECISIONS/0111-a-build-source-is-on-the-git-seat-or-external.md), [ADR 0109](../../02-DECISIONS/0109-a-package-registry-seat-is-one-per-ecosystem.md) |
 | [`27-a-module-requires-the-mesh-resolves.md`](27-a-module-requires-the-mesh-resolves.md) | **Proposed.** One concept for everything a module needs: a requirement with a contract, answered by one of four kinds of provider, resolved at assignment or refused. Retires settings, placeholders, facts and paths in definitions | [ADR 0112](../../02-DECISIONS/0112-a-module-definition-names-no-node-mesh-or-path.md), [ADR 0113](../../02-DECISIONS/0113-the-vault-makes-every-secret.md), [ADR 0114](../../02-DECISIONS/0114-a-shared-credential-rotates-over-two-credentials.md), [ADR 0110](../../02-DECISIONS/0110-a-seat-is-a-module-assignment-from-a-closed-set.md) |
+| [`28-building-the-bus.md`](28-building-the-bus.md) | **Proposed.** The five steps of the bus work in the order their dependencies allow, each ending at a bed — with the surface measured, so no step's size is a guess | [ADR 0115](../../02-DECISIONS/0115-the-bus-is-built-in-five-steps.md), [ADR 0106](../../02-DECISIONS/0106-the-bus-is-nats.md), [ADR 0074](../../02-DECISIONS/0074-the-wire-is-specified-not-the-types.md) |

 ## Not yet written