diff --git a/pkg/campaign/prompts/orchestrator_instructions.md b/pkg/campaign/prompts/orchestrator_instructions.md
index 677aa8d4a9..ee66d2f9c7 100644
--- a/pkg/campaign/prompts/orchestrator_instructions.md
+++ b/pkg/campaign/prompts/orchestrator_instructions.md
@@ -154,10 +154,11 @@ Execute these steps in sequence each time this orchestrator runs:
 
 4.5 **Deterministic planner step (required when objective/KPIs are present)**
 
-Before choosing additions/updates, produce a small, bounded plan that is rule-based and reproducible from the discovered state:
-- Output at most **3** planned actions.
-- Prefer actions that are directly connected to improving the **primary** KPI.
-- If signals indicate risk or uncertainty, prefer smaller, reversible actions.
+Before executing board synchronization, produce a small strategic commentary that is rule-based and reproducible from the discovered state:
+- Output at most **3** strategic observations or recommendations.
+- Focus on actions that are directly connected to improving the **primary** KPI.
+- If signals indicate risk or uncertainty, note smaller, reversible next steps.
+- **IMPORTANT**: This planning step is for strategic commentary only. It does NOT limit the number of items added to the board in steps 5-9.5. All discovered items must still be synchronized to the board per the rules below.
 
 Plan format (keep under 2KB):
 ```json
@@ -165,16 +166,19 @@ Plan format (keep under 2KB):
    "objective": "...",
    "primary_kpi": "...",
    "kpi_trends": [{"name": "...", "trend": "Improving|Flat|Regressing"}],
-   "actions": [
-      {"type": "add_to_project|update_status|comment", "why": "...", "target_url": "..."}
+   "strategic_observations": [
+      {"observation": "...", "recommendation": "..."}
    ]
 }
 ```
 
 5. **Decide additions (with pacing)** - For each new item discovered:
-   - Decision: Add to board? (Default: yes for all items with tracker label or worker tracker-id)
-   - If `governance.max-new-items-per-run` is set, add at most that many new items
-   - Prefer adding oldest (or least recently updated) missing items first
+   - **CRITICAL**: All discovered items (both tracker-labeled from step 1 AND worker-created from step 2) MUST be added to the board to maintain synchronization between the campaign state and the project board.
+   - Decision: Add to board? (Default: **YES** for all items with tracker label or worker tracker-id)
+   - If `governance.max-new-items-per-run` is set, add at most that many new items in this single run (remaining items will be added in subsequent runs)
+   - When applying the governance limit, prioritize in this order:
+     1. Tracker-labeled items (campaign tasks) - add oldest first
+     2. Worker-created items (worker outputs) - add oldest first
    - Determine initial status field value based on item state:
      - Open issue/PR/discussion → "Todo" status
      - Closed issue/discussion → "Done" status
@@ -202,10 +206,12 @@ Plan format (keep under 2KB):
 #### Phase 3: Write State (Execution)
 
 8. **Execute additions** - Add new items to project board
+   - Add ALL items identified in step 5 (both tracker-labeled and worker-created), up to the governance limit if set
    - Use `update-project` safe-output for each new item
    - Set predefined fields: `status` (required), optionally `priority`, `size`
    - If worker tracker-id is found in item body (issue/PR/discussion), populate `worker_workflow` field
    - Record outcome: success or failure with error details
+   - If governance limit is reached, log remaining items and note they will be processed in the next run
 
 9. **Execute status updates** - Update existing board items with status changes
    - Use `update-project` safe-output for each status change
@@ -225,11 +231,12 @@ Plan format (keep under 2KB):
 #### Phase 4: Report (Output)
 
 11. **Generate status report** - Summarize execution results:
-    - Total items discovered via tracker label and worker tracker-ids (by type: issues, PRs, discussions)
-    - Items added to board this run (count and URLs, by type)
+    - Total items discovered via tracker label (by type: issues, PRs)
+    - Total items discovered via worker tracker-ids (by type: issues, PRs, discussions)
+    - Items added to board this run (count and URLs, broken down by: tracker-labeled vs worker-created)
     - Items updated on board this run (count and status changes)
     - Items with fields populated this run (count and which fields, e.g., worker_workflow)
-    - Items skipped due to governance limits (and why)
+    - Items skipped due to governance limits (count, type, and why - noting they will be added in next run)
     - Current campaign metrics: open vs closed, progress percentage
     - Any failures encountered during writes
     - Campaign completion status