diff --git a/packages/coding-agent/src/prompts/goals/goal-todo-context.md b/packages/coding-agent/src/prompts/goals/goal-todo-context.md
index 72dbe4935..7d794393b 100644
--- a/packages/coding-agent/src/prompts/goals/goal-todo-context.md
+++ b/packages/coding-agent/src/prompts/goals/goal-todo-context.md
@@ -1,6 +1,6 @@
 <todo_context>
 Current persisted todo state for this goal follows. Goal continuations do not get a visible user nudge, so treat this as live progress state, not old transcript decoration.
-Before continuing substantial work, compare your next action with these todos. If an item is stale, already finished, or no longer the active pointer, call the `todo` tool first to mark it done or rewrite the list. Do not leave a stale in_progress item while working on later phases.
+{{#if canCallTodoTool}}Before continuing substantial work, compare your next action with these todos. If an item is stale, already finished, or no longer the active pointer, call the `todo` tool first to mark it done or rewrite the list. Do not leave a stale in_progress item while working on later phases.{{else}}Before continuing substantial work, compare your next action with these todos as read-only progress state. The `todo` tool is discoverable but not active in this turn; if the list needs edits, activate `todo` first instead of ignoring the persisted state.{{/if}}
 
 Overall: {{closed}}/{{total}} done, {{open}} open.
 {{#each phases}}
diff --git a/packages/coding-agent/src/session/agent-session.ts b/packages/coding-agent/src/session/agent-session.ts
index 2a1205022..f8d80e6e3 100644
--- a/packages/coding-agent/src/session/agent-session.ts
+++ b/packages/coding-agent/src/session/agent-session.ts
@@ -6512,7 +6512,11 @@ export class AgentSession {
 
 	#buildGoalTodoContext(): string | undefined {
 		if (!this.settings.get("todo.enabled")) return undefined;
-		if (!this.getActiveToolNames().includes("todo")) return undefined;
+		const activeToolNames = this.getActiveToolNames();
+		const canCallTodoTool = activeToolNames.includes("todo");
+		const canDiscoverTodoTool =
+			!canCallTodoTool && this.getDiscoverableTools({ source: "builtin" }).some(tool => tool.name === "todo");
+		if (!canCallTodoTool && !canDiscoverTodoTool) return undefined;
 		const phases = this.getTodoPhases().filter(phase => phase.tasks.length > 0);
 		if (phases.length === 0) return undefined;
 
@@ -6533,6 +6537,7 @@ export class AgentSession {
 		}));
 
 		return prompt.render(goalTodoContextPrompt, {
+			canCallTodoTool,
 			closed: String(closed),
 			open: String(open),
 			phases: promptPhases,
diff --git a/packages/coding-agent/test/goals/goal-mode-integration.test.ts b/packages/coding-agent/test/goals/goal-mode-integration.test.ts
index 1181a7918..d56b1f936 100644
--- a/packages/coding-agent/test/goals/goal-mode-integration.test.ts
+++ b/packages/coding-agent/test/goals/goal-mode-integration.test.ts
@@ -302,6 +302,31 @@ describe("InteractiveMode goal mode integration", () => {
 		expect(content.match(/<\/todo_context>/g)).toHaveLength(1);
 	});
 
+	it("includes read-only todo state when todo is discoverable but inactive", async () => {
+		harness.settings.set("tools.discoveryMode", "all");
+		await harness.mode.handleGoalModeCommand("Ship the release");
+		harness.session.setTodoPhases([
+			{
+				name: "Verification",
+				tasks: [{ content: "Run focused checks", status: "pending" }],
+			},
+		]);
+		expect(harness.session.getActiveToolNames()).not.toContain("todo");
+		expect(harness.session.getDiscoverableTools({ source: "builtin" }).some(tool => tool.name === "todo")).toBe(true);
+		const sendCustomMessage = vi.spyOn(harness.session, "sendCustomMessage").mockResolvedValue(false);
+
+		await harness.session.sendGoalModeContext({ deliverAs: "steer" });
+
+		const message = sendCustomMessage.mock.calls[0]?.[0];
+		const content = typeof message?.content === "string" ? message.content : "";
+		expect(message?.customType).toBe("goal-mode-context");
+		expect(content).toContain("<todo_context>");
+		expect(content).toContain("Run focused checks");
+		expect(content).toContain("read-only progress state");
+		expect(content).toContain("discoverable but not active");
+		expect(content).not.toContain("call the `todo` tool first");
+	});
+
 	it("omits persisted todo state when todo tool is inactive", async () => {
 		await harness.mode.handleGoalModeCommand("Ship the release");
 		harness.session.setTodoPhases([