diff --git a/src/plugins/loader.test.ts b/src/plugins/loader.test.ts
index 689d4c67df3..ee455af9202 100644
--- a/src/plugins/loader.test.ts
+++ b/src/plugins/loader.test.ts
@@ -560,6 +560,15 @@ module.exports = { id: "skipped", register() { throw new Error("skipped plugin s
     expect(getGlobalHookRunner()).toBeNull();
   });
 
+  it("throws when activate:false is used without cache:false", () => {
+    expect(() => loadOpenClawPlugins({ activate: false })).toThrow(
+      "activate:false requires cache:false",
+    );
+    expect(() => loadOpenClawPlugins({ activate: false, cache: true })).toThrow(
+      "activate:false requires cache:false",
+    );
+  });
+
   it("re-initializes global hook runner when serving registry from cache", () => {
     process.env.OPENCLAW_BUNDLED_PLUGINS_DIR = "/nonexistent/bundled/plugins";
     const plugin = writePlugin({
diff --git a/src/plugins/loader.ts b/src/plugins/loader.ts
index cfd3af6a8e8..f25009b591f 100644
--- a/src/plugins/loader.ts
+++ b/src/plugins/loader.ts
@@ -641,6 +641,13 @@ function activatePluginRegistry(registry: PluginRegistry, cacheKey: string): voi
 }
 
 export function loadOpenClawPlugins(options: PluginLoadOptions = {}): PluginRegistry {
+  // Snapshot (non-activating) loads must disable the cache to avoid storing a registry
+  // whose commands were never globally registered.
+  if (options.activate === false && options.cache !== false) {
+    throw new Error(
+      "loadOpenClawPlugins: activate:false requires cache:false to prevent command registry divergence",
+    );
+  }
   const env = options.env ?? process.env;
   // Test env: default-disable plugins unless explicitly configured.
   // This keeps unit/gateway suites fast and avoids loading heavyweight plugin deps by accident.