diff --git a/.changeset/broken-windows-description-2787.md b/.changeset/broken-windows-description-2787.md
new file mode 100644
index 000000000..2d1f2ac34
--- /dev/null
+++ b/.changeset/broken-windows-description-2787.md
@@ -0,0 +1,5 @@
+---
+type: Fixed
+pr: 2814
+---
+**`broken-windows` capability no longer claims ship blocking is unconditional** — the description now states that `/gsd-ship` blocking applies only when `workflow.windows_enforce` is enabled (default `false`); ledger tracking is unaffected. (#2787)
diff --git a/capabilities/broken-windows/capability.json b/capabilities/broken-windows/capability.json
index a26cb976f..fc75224e3 100644
--- a/capabilities/broken-windows/capability.json
+++ b/capabilities/broken-windows/capability.json
@@ -3,7 +3,7 @@
   "role": "feature",
   "version": "1.9.1",
   "title": "Broken-windows ledger",
-  "description": "Cross-phase defect register accumulating stubs, TODOs, skipped tests, unrun verifies, and unmet truths into .planning/WINDOWS.md. Blocks /gsd-ship while any window is open unless explicitly waived with a recorded reason. Operationalizes GSD's no-defer discipline as a tracked, enforced artifact (issue #1950).",
+  "description": "Cross-phase defect register accumulating stubs, TODOs, skipped tests, unrun verifies, and unmet truths into .planning/WINDOWS.md. When enforcement is enabled, it blocks /gsd-ship while any window is open unless explicitly waived with a recorded reason. Operationalizes GSD's no-defer discipline as a tracked artifact (issue #1950).",
   "tier": "full",
   "requires": [],
   "engines": {
diff --git a/gsd-core/bin/lib/capability-registry.cjs b/gsd-core/bin/lib/capability-registry.cjs
index b6bae0631..c33a32c85 100644
--- a/gsd-core/bin/lib/capability-registry.cjs
+++ b/gsd-core/bin/lib/capability-registry.cjs
@@ -433,7 +433,7 @@ const capabilities = {
     "role": "feature",
     "version": "1.9.1",
     "title": "Broken-windows ledger",
-    "description": "Cross-phase defect register accumulating stubs, TODOs, skipped tests, unrun verifies, and unmet truths into .planning/WINDOWS.md. Blocks /gsd-ship while any window is open unless explicitly waived with a recorded reason. Operationalizes GSD's no-defer discipline as a tracked, enforced artifact (issue #1950).",
+    "description": "Cross-phase defect register accumulating stubs, TODOs, skipped tests, unrun verifies, and unmet truths into .planning/WINDOWS.md. When enforcement is enabled, it blocks /gsd-ship while any window is open unless explicitly waived with a recorded reason. Operationalizes GSD's no-defer discipline as a tracked artifact (issue #1950).",
     "tier": "full",
     "requires": [],
     "engines": {
diff --git a/src/broken-windows.cts b/src/broken-windows.cts
index 032c4e6b7..fb404cb5f 100644
--- a/src/broken-windows.cts
+++ b/src/broken-windows.cts
@@ -1,10 +1,10 @@
 /**
- * Broken-windows ledger — enforced cross-phase defect register (issue #1950).
+ * Broken-windows ledger — optionally enforced cross-phase defect register (issue #1950).
  *
  * Manages `.planning/WINDOWS.md`: a cross-phase ledger of small defects (stubs,
  * TODOs, skipped tests, lint warnings, unrun verifies, unmet truths, deviations).
- * `/gsd-ship` blocks while any entry is `open`; an entry can be `waived` only
- * with a recorded reason or `fixed`.
+ * When `workflow.windows_enforce` is true, `/gsd-ship` blocks while any entry is
+ * `open`; an entry can be `waived` only with a recorded reason or `fixed`.
  *
  * LEAF MODULE — imports ONLY: node:fs, node:path. No other src/ imports.
  *
@@ -596,7 +596,7 @@ export function renderLedger(ledger: Ledger): string {
   const header = [
     '# Broken Windows Ledger',
     '',
-    '> Cross-phase defect register. `/gsd-ship` blocks while `open_count > 0`.',
+    '> Cross-phase defect register. With `workflow.windows_enforce` enabled, `/gsd-ship` blocks while `open_count > 0`.',
     '> Waive with `gsd-tools windows waive <id> "<reason>"` (reason required).',
     '> Mark fixed with `gsd-tools windows fixed <id>`.',
     '',
diff --git a/tests/broken-windows-description.test.cjs b/tests/broken-windows-description.test.cjs
new file mode 100644
index 000000000..8e999d4c9
--- /dev/null
+++ b/tests/broken-windows-description.test.cjs
@@ -0,0 +1,43 @@
+const { test } = require('node:test');
+const assert = require('node:assert/strict');
+const fs = require('node:fs');
+const path = require('node:path');
+
+test('broken-windows capability description specifies enforcement is opt-in', () => {
+  const capabilityPath = path.join(__dirname, '..', 'capabilities', 'broken-windows', 'capability.json');
+  const capabilityJson = JSON.parse(fs.readFileSync(capabilityPath, 'utf8'));
+
+  assert.ok(
+    capabilityJson.description.includes('When enforcement is enabled') || capabilityJson.description.includes('workflow.windows_enforce'),
+    `capability.json description should state enforcement is opt-in, got: ${capabilityJson.description}`
+  );
+
+  // Re-anchored: the unqualified sentence on next ("Blocks /gsd-ship while any window is open") must not be present
+  assert.strictEqual(
+    capabilityJson.description.includes('Blocks /gsd-ship while any window is open'),
+    false,
+    'description must not contain unqualified unconditional ship blocking sentence'
+  );
+
+  // Behavioral gate contract test: verify the ship:pre gate is gated on workflow.windows_enforce
+  const shipGate = capabilityJson.gates.find(g => g.point === 'ship:pre');
+  assert.ok(shipGate, 'broken-windows capability must declare ship:pre gate');
+  assert.strictEqual(
+    shipGate.when,
+    'workflow.windows_enforce',
+    'ship:pre gate must be gated on workflow.windows_enforce config key'
+  );
+
+  // Behavioral test for renderLedger
+  const bw = require('../gsd-core/bin/lib/broken-windows.cjs');
+  const rendered = bw.renderLedger(bw.emptyLedger());
+  assert.strictEqual(
+    rendered.includes('> Cross-phase defect register. `/gsd-ship` blocks while `open_count > 0`.'),
+    false,
+    'renderLedger must not contain unqualified blocking sentence'
+  );
+  assert.ok(
+    rendered.includes('With `workflow.windows_enforce` enabled, `/gsd-ship` blocks'),
+    'renderLedger must document opt-in enforcement'
+  );
+});