DEPRECATED — always refuses, naming HoldUser or GovernanceService.OpenUserSuspension.

The verb was ambiguous in the one way that mattered: it was both the emergency brake (the frozen flag the money plane re-reads at dispatch, which stops a withdrawal already in the queue) and a permanent judgement on an account, decided by one person with no record of why. Those need opposite treatments — the first must stay instant, the second must not be one person's to make — so the caller now has to say which one they mean. Kept in the contract rather than deleted so an older console gets an explanatory refusal instead of an UNIMPLEMENTED.