diff --git a/src/plugins/installed-plugin-index-store.test.ts b/src/plugins/installed-plugin-index-store.test.ts
index 47ea778ba14..1a97f406b55 100644
--- a/src/plugins/installed-plugin-index-store.test.ts
+++ b/src/plugins/installed-plugin-index-store.test.ts
@@ -36,6 +36,7 @@ function createIndex(overrides: Partial<InstalledPluginIndex> = {}): InstalledPl
         manifestHash: "manifest-hash",
         rootDir: "/plugins/demo",
         origin: "global",
+        enabled: true,
         contributions: {
           providers: ["demo"],
           channels: ["demo-chat"],
@@ -150,7 +151,7 @@ describe("installed plugin index persistence", () => {
       refreshReasons: [],
       persisted: current,
       current: {
-        plugins: [expect.objectContaining({ pluginId: "demo" })],
+        plugins: [expect.objectContaining({ pluginId: "demo", enabled: true })],
       },
     });
 
@@ -174,7 +175,7 @@ describe("installed plugin index persistence", () => {
       refreshReasons: ["policy-changed"],
       persisted: current,
       current: {
-        plugins: [expect.objectContaining({ pluginId: "demo" })],
+        plugins: [expect.objectContaining({ pluginId: "demo", enabled: false })],
       },
     });
 
diff --git a/src/plugins/installed-plugin-index-store.ts b/src/plugins/installed-plugin-index-store.ts
index 6e2298f69ac..d41e73d6f2d 100644
--- a/src/plugins/installed-plugin-index-store.ts
+++ b/src/plugins/installed-plugin-index-store.ts
@@ -60,6 +60,7 @@ const InstalledPluginIndexRecordSchema = z
     packageJsonHash: z.string().optional(),
     rootDir: z.string(),
     origin: z.string(),
+    enabled: z.boolean(),
     enabledByDefault: z.boolean().optional(),
     contributions: InstalledPluginIndexContributionsSchema,
     compat: z.array(z.string()),
diff --git a/src/plugins/installed-plugin-index.test.ts b/src/plugins/installed-plugin-index.test.ts
index fd8af6cbb91..71078aba5a9 100644
--- a/src/plugins/installed-plugin-index.test.ts
+++ b/src/plugins/installed-plugin-index.test.ts
@@ -162,6 +162,7 @@ describe("installed plugin index", () => {
           packageVersion: "1.2.3",
           origin: "global",
           rootDir: fixture.rootDir,
+          enabled: true,
           packageInstall: {
             defaultChoice: "npm",
             npm: {
@@ -220,6 +221,7 @@ describe("installed plugin index", () => {
     const record = getInstalledPluginRecord(index, "demo");
     expect(record).toMatchObject({
       pluginId: "demo",
+      enabled: true,
     });
     expect(record?.installRecord).toBeUndefined();
     expect(isInstalledPluginEnabled(index, "demo")).toBe(true);
@@ -259,6 +261,7 @@ describe("installed plugin index", () => {
     expect(listEnabledInstalledPluginRecords(index, config)).toEqual([]);
     expect(getInstalledPluginRecord(index, "demo")).toMatchObject({
       pluginId: "demo",
+      enabled: false,
     });
     expect(isInstalledPluginEnabled(index, "demo", config)).toBe(false);
     expect(listInstalledPluginContributionIds(index, "providers", { config })).toEqual([]);
@@ -536,6 +539,7 @@ describe("installed plugin index", () => {
         },
       }),
     ).toBe(false);
+    expect(index.plugins[0]?.enabled).toBe(false);
     expect(index.plugins[0]?.contributions.providers).toEqual(["demo"]);
   });
 
diff --git a/src/plugins/installed-plugin-index.ts b/src/plugins/installed-plugin-index.ts
index 1cbd04b617c..cc90f7b62d3 100644
--- a/src/plugins/installed-plugin-index.ts
+++ b/src/plugins/installed-plugin-index.ts
@@ -91,6 +91,7 @@ export type InstalledPluginIndexRecord = {
   packageJsonHash?: string;
   rootDir: string;
   origin: PluginManifestRecord["origin"];
+  enabled: boolean;
   enabledByDefault?: boolean;
   contributions: InstalledPluginIndexContributions;
   compat: readonly PluginCompatCode[];
@@ -400,6 +401,7 @@ function buildInstalledPluginIndex(
   const env = params.env ?? process.env;
   const { candidates, registry } = resolveRegistry(params);
   const candidateByRootDir = buildCandidateLookup(candidates);
+  const normalizedConfig = normalizePluginsConfigWithResolver(params.config?.plugins);
   const diagnostics: PluginDiagnostic[] = [...registry.diagnostics];
   const generatedAtMs = (params.now?.() ?? new Date()).getTime();
   const plugins = registry.plugins.map((record): InstalledPluginIndexRecord => {
@@ -422,12 +424,20 @@ function buildInstalledPluginIndex(
           required: false,
         })
       : undefined;
+    const enabled = resolveEffectiveEnableState({
+      id: record.id,
+      origin: record.origin,
+      config: normalizedConfig,
+      rootConfig: params.config,
+      enabledByDefault: record.enabledByDefault,
+    }).enabled;
     const indexRecord: InstalledPluginIndexRecord = {
       pluginId: record.id,
       manifestPath: record.manifestPath,
       manifestHash,
       rootDir: record.rootDir,
       origin: record.origin,
+      enabled,
       contributions: buildContributions(record),
       compat: collectCompatCodes(record),
     };
@@ -490,6 +500,9 @@ export function listEnabledInstalledPluginRecords(
   index: InstalledPluginIndex,
   config?: OpenClawConfig,
 ): readonly InstalledPluginIndexRecord[] {
+  if (!config) {
+    return index.plugins.filter((plugin) => plugin.enabled);
+  }
   const normalizedConfig = normalizePluginsConfigWithResolver(config?.plugins);
   return index.plugins.filter(
     (plugin) =>
@@ -519,6 +532,9 @@ export function isInstalledPluginEnabled(
   if (!record) {
     return false;
   }
+  if (!config) {
+    return record.enabled;
+  }
   const normalizedConfig = normalizePluginsConfigWithResolver(config?.plugins);
   return resolveEffectiveEnableState({
     id: record.pluginId,
@@ -674,6 +690,9 @@ export function diffInstalledPluginIndexInvalidationReasons(
     ) {
       reasons.add("source-changed");
     }
+    if (previousPlugin.enabled !== currentPlugin.enabled) {
+      reasons.add("policy-changed");
+    }
     if (previousPlugin.manifestHash !== currentPlugin.manifestHash) {
       reasons.add("stale-manifest");
     }
diff --git a/src/plugins/plugin-registry.test.ts b/src/plugins/plugin-registry.test.ts
index 865d322f696..ebdabb20578 100644
--- a/src/plugins/plugin-registry.test.ts
+++ b/src/plugins/plugin-registry.test.ts
@@ -97,6 +97,7 @@ describe("plugin registry facade", () => {
     expect(listPluginRecords({ index }).map((plugin) => plugin.pluginId)).toEqual(["demo"]);
     expect(getPluginRecord({ index, pluginId: "demo" })).toMatchObject({
       pluginId: "demo",
+      enabled: true,
     });
     expect(isPluginEnabled({ index, pluginId: "demo" })).toBe(true);
     expect(listPluginContributionIds({ index, contribution: "providers" })).toEqual(["demo"]);
@@ -132,6 +133,7 @@ describe("plugin registry facade", () => {
 
     expect(getPluginRecord({ index, pluginId: "demo" })).toMatchObject({
       pluginId: "demo",
+      enabled: false,
     });
     const config = {
       plugins: {