Both economy.md and messages.md deferred the issue-#11 build to 'the financial-mail work order', but no such order existed on the dispatch board — the decided design was unreachable from ROADMAP. messages.md now carries Work order: financial-mail (priority 70, class save, exclusive keys over messages.rs / sim economy+communications / save.rs and the two owning pages), following the intel.md reopened-spec precedent, and the generated live index carries the row. Defense: ROADMAP is the dispatch board by wiki/process rules — a decision recorded 'build later' must be reachable from it; work_orders.py validate passes with the reopened status reconciled in the #17 prose entry.