This sure is a messy area and I've learned the answer is nice and complex. Carol Calhoun's book, the Governmental Plans Answer Book, can help you - if possible you might try to locate it for purchase online or find it at a law library. Chapter 1 of that book answers your exact question and provides the cites you may need - generally it is Title I that governmental plans are exempt from, although some but not all of the tax-related provisions in Title II still apply. You've got the governmental plan term defined in Title I (ERISA 3(32)), section 414(d) of the Code (for Title II) and in Title IV (plan termination insurance) ERISA § 4021(b)(2). It really is a mess!
No this is not a shameless plug and I am not affiliated with Ms. Calhoun or her firm in any way