By reference, certain sections of 401(a) are not relevant to governmental plans, unless required by state law.
For example, 401(a)(3) references compliance with 410, but 410© exempts governmental plans.
Another example, 401(a)(29) references compliance with 412 / 436, but 412(e) exempts governmental plans.
Note that the ERISA exemption for governmental plans generally requires compliance with the IRC as it existed the day before ERISA was enacted. IMHO, the IRS wants nothing to do with policing plans of state and local governments.