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See the spec...
Currently we generate Javadoc for all packages. The spec proposes to generate Javadoc for one package (maybe recursively for "subpackages"). Current state is too much. Proposed state is too restrictive.
I would be inclined to drop the package field from the spec entirely and continue to generate Javadoc for all packages. Users who wish to document only certain packages probably also want to group some packages, give them titles, customize other stuff, etc. etc. - there are a huge number of potential options to the Javadoc tool - and would probably be better off writing <javadoc> into build.xml themselves.
I removed the Package field from the spec.
Verified.