In the previous game jam, the cover was part of your page limit, because the cover can be used to add additional content which would put you over the 8 page limit. The text on the jam says 8 pages or less. Must include your inspiration statement, so legal should be presumed necessary there as well. Keeping in mind that the adventure The Hideous Halls of Mugdublub in Cursed Scrolls 1 clocked in at 16 pages A5 (or 8 pages A4) and is a 33-room dungeon, you should be able to include a cover & legal in the 8 page limit.