diff --git a/docs/DATABASE_SCHEMA.md b/docs/DATABASE_SCHEMA.md
index 2caf367..ea93fba 100644
--- a/docs/DATABASE_SCHEMA.md
+++ b/docs/DATABASE_SCHEMA.md
@@ -705,7 +705,7 @@ migration is mirrored as a section in it. Tables/columns added:
 | 023 | `space_role_permissions`, `ops_acl`; `user_effective_roles()`, `user_has_permission()` (SECURITY DEFINER); `secrets`/`knowledge_base` SELECT rewritten as `existing-rule OR ops_acl-match` (additive) |
 | 024 | `prevent_member_self_role_change()` extended to also block self-change of `tier_id` and `onboarding_completed_at` |
 | 025 | Re-asserts the hardened `incidents_insert` policy verbatim (production convergence; access-neutral, no schema change) |
-| 026 | `forms`, `form_submissions` (custom forms + waivers). Globally-unique form slug; jsonb field schema; per-submission snapshot of schema/legal-text/version for immutable waiver records. RLS additive + default-deny: forms SELECT = space members, write = `user_has_permission(..., 'forms.manage')`; form_submissions SELECT = `forms.manage` only, NO write policy (every submission is written by one validated service-client server action, and submissions are immutable). New `forms.manage` permission seeded to board + backfilled |
+| 026 | `forms`, `form_submissions` (custom forms + waivers). Globally-unique form slug; jsonb field schema; per-submission snapshot of schema/legal-text/version for immutable waiver records. RLS additive + default-deny: forms SELECT = `forms.manage` holders (all) or members (published only), write = `user_has_permission(..., 'forms.manage')`; form_submissions SELECT = `forms.manage` only, NO write policy (every submission is written by one validated service-client server action, and submissions are immutable). New `forms.manage` permission seeded to board + backfilled |
 
 New enum: `comment_entity_type` = `forum_thread | proposal | incident | policy`.
 
diff --git a/docs/HANDOFF.md b/docs/HANDOFF.md
index cf2b5d2..c8dd49e 100644
--- a/docs/HANDOFF.md
+++ b/docs/HANDOFF.md
@@ -21,7 +21,7 @@ Branch: `main`. Migration: `026` (not yet deployed). `pnpm build` + `pnpm exec v
 
 - New `scripts/026_forms.sql` (idempotent) + mirrored as `schema.sql` Section 17 + Section 15 seed-function updated.
 - Tables: `forms` (space_id, globally-UNIQUE `slug`, `kind` form/waiver, `visibility` public_anon/public_auth/members, `status` draft/published/closed, `schema` jsonb, `legal_text`, `version`, `created_by`) and `form_submissions` (form_id, denormalized space_id, member_id, submitter_email, answers, `form_snapshot`/`legal_text_snapshot`/`form_version` immutable snapshots, ip, user_agent). Indexes on space/slug/form/email/member.
-- RLS (additive, default-deny): `forms` SELECT = space members; INSERT/UPDATE/DELETE = `user_has_permission(..., 'forms.manage')`. `form_submissions` SELECT = `forms.manage` only; **no write policy at all** → RLS hard-denies every non-service client and makes submissions immutable. Every submission funnels through one validated service-client server action (Phase 2). Public `/f/[slug]` will be served by a service-client server action, so `anon` gets no grant on `forms` (user-chosen option).
+- RLS (additive, default-deny): `forms` SELECT = `forms.manage` holders (all forms) or ordinary members (published only — drafts/closed hidden from non-managers); INSERT/UPDATE/DELETE = `user_has_permission(..., 'forms.manage')`. `form_submissions` SELECT = `forms.manage` only; **no write policy at all** → RLS hard-denies every non-service client and makes submissions immutable. Every submission funnels through one validated service-client server action (Phase 2). Public `/f/[slug]` will be served by a service-client server action, so `anon` gets no grant on `forms` (user-chosen option).
 - New `forms.manage` permission added to `lib/permissions-catalog.ts` (group Community) + board default; `seed_default_role_permissions()` extended; backfill `board -> forms.manage` for existing spaces (ON CONFLICT DO NOTHING).
 - `types/database.ts`: `forms` + `form_submissions` added. Docs updated: DATABASE_SCHEMA (026 row), DB_SCHEMA_MAP (quick-map + migrations), ARCHITECTURE (forms note).
 
diff --git a/scripts/026_forms.sql b/scripts/026_forms.sql
index 2bc0997..b0e33f4 100644
--- a/scripts/026_forms.sql
+++ b/scripts/026_forms.sql
@@ -14,10 +14,11 @@
 -- RLS posture (this is the security-sensitive part, kept additive and
 -- default-deny):
 --
---   * forms SELECT: any member of the space (powers the admin directory and
---     the in-app fill page). The public unauthenticated /f/[slug] page does
---     NOT read this table directly; it is served by a server action using the
---     service client, so the anon Postgres role gets no grant here.
+--   * forms SELECT: forms.manage holders see every form in the space; ordinary
+--     members see only published ones (drafts/closed are not exposed to
+--     non-managers). The public unauthenticated /f/[slug] page does NOT read
+--     this table directly; it is served by a server action using the service
+--     client, so the anon Postgres role gets no grant here.
 --   * forms INSERT/UPDATE/DELETE: user_has_permission(..., 'forms.manage').
 --     Additive — with no space_role_permissions rows, only admin (implicit-all)
 --     can manage, which is the pre-feature behavior.
@@ -61,8 +62,9 @@ CREATE TABLE IF NOT EXISTS public.forms (
   created_at  timestamptz NOT NULL DEFAULT now(),
   updated_at  timestamptz NOT NULL DEFAULT now()
 );
+-- slug already has a UNIQUE btree index from the column constraint; no extra
+-- index on slug is needed.
 CREATE INDEX IF NOT EXISTS idx_forms_space  ON public.forms (space_id, status);
-CREATE INDEX IF NOT EXISTS idx_forms_slug   ON public.forms (slug);
 
 CREATE TABLE IF NOT EXISTS public.form_submissions (
   id                 uuid        PRIMARY KEY DEFAULT uuid_generate_v4(),
@@ -80,8 +82,8 @@ CREATE TABLE IF NOT EXISTS public.form_submissions (
 );
 CREATE INDEX IF NOT EXISTS idx_form_submissions_form  ON public.form_submissions (form_id, created_at DESC);
 CREATE INDEX IF NOT EXISTS idx_form_submissions_space ON public.form_submissions (space_id);
-CREATE INDEX IF NOT EXISTS idx_form_submissions_email ON public.form_submissions (submitter_email);
-CREATE INDEX IF NOT EXISTS idx_form_submissions_member ON public.form_submissions (member_id);
+CREATE INDEX IF NOT EXISTS idx_form_submissions_email ON public.form_submissions (submitter_email) WHERE submitter_email IS NOT NULL;
+CREATE INDEX IF NOT EXISTS idx_form_submissions_member ON public.form_submissions (member_id) WHERE member_id IS NOT NULL;
 
 ALTER TABLE public.forms            ENABLE ROW LEVEL SECURITY;
 ALTER TABLE public.form_submissions ENABLE ROW LEVEL SECURITY;
@@ -90,8 +92,17 @@ DROP POLICY IF EXISTS forms_select ON public.forms;
 DROP POLICY IF EXISTS forms_insert ON public.forms;
 DROP POLICY IF EXISTS forms_update ON public.forms;
 DROP POLICY IF EXISTS forms_delete ON public.forms;
+-- Managers (forms.manage) see every form in the space; ordinary members see
+-- only published ones. Drafts/closed forms are not exposed to non-managers via
+-- raw PostgREST. anon (auth.uid() NULL) matches neither branch.
 CREATE POLICY forms_select ON public.forms FOR SELECT
-  USING (space_id IN (SELECT public.get_user_space_ids(auth.uid())));
+  USING (
+    public.user_has_permission(auth.uid(), space_id, 'forms.manage')
+    OR (
+      space_id IN (SELECT public.get_user_space_ids(auth.uid()))
+      AND status = 'published'
+    )
+  );
 CREATE POLICY forms_insert ON public.forms FOR INSERT
   WITH CHECK (public.user_has_permission(auth.uid(), space_id, 'forms.manage'));
 CREATE POLICY forms_update ON public.forms FOR UPDATE
diff --git a/scripts/schema.sql b/scripts/schema.sql
index 09e6829..b074e1e 100644
--- a/scripts/schema.sql
+++ b/scripts/schema.sql
@@ -1884,7 +1884,8 @@ CREATE TRIGGER trg_prevent_member_self_role_change
 --     existing one.
 --
 --     RLS is additive and default-deny:
---       * forms SELECT = any member of the space. The public unauthenticated
+--       * forms SELECT = forms.manage holders see all forms in the space;
+--         ordinary members see only published ones. The public unauthenticated
 --         /f/[slug] page is served by a service-client server action, so the
 --         anon role gets no grant on this table.
 --       * forms write = user_has_permission(..., 'forms.manage').
@@ -1916,8 +1917,8 @@ CREATE TABLE IF NOT EXISTS public.forms (
   created_at  timestamptz NOT NULL DEFAULT now(),
   updated_at  timestamptz NOT NULL DEFAULT now()
 );
+-- slug already has a UNIQUE btree index from the column constraint.
 CREATE INDEX IF NOT EXISTS idx_forms_space  ON public.forms (space_id, status);
-CREATE INDEX IF NOT EXISTS idx_forms_slug   ON public.forms (slug);
 
 CREATE TABLE IF NOT EXISTS public.form_submissions (
   id                 uuid        PRIMARY KEY DEFAULT uuid_generate_v4(),
@@ -1935,8 +1936,8 @@ CREATE TABLE IF NOT EXISTS public.form_submissions (
 );
 CREATE INDEX IF NOT EXISTS idx_form_submissions_form  ON public.form_submissions (form_id, created_at DESC);
 CREATE INDEX IF NOT EXISTS idx_form_submissions_space ON public.form_submissions (space_id);
-CREATE INDEX IF NOT EXISTS idx_form_submissions_email ON public.form_submissions (submitter_email);
-CREATE INDEX IF NOT EXISTS idx_form_submissions_member ON public.form_submissions (member_id);
+CREATE INDEX IF NOT EXISTS idx_form_submissions_email ON public.form_submissions (submitter_email) WHERE submitter_email IS NOT NULL;
+CREATE INDEX IF NOT EXISTS idx_form_submissions_member ON public.form_submissions (member_id) WHERE member_id IS NOT NULL;
 
 ALTER TABLE public.forms            ENABLE ROW LEVEL SECURITY;
 ALTER TABLE public.form_submissions ENABLE ROW LEVEL SECURITY;
@@ -1946,7 +1947,13 @@ DROP POLICY IF EXISTS forms_insert ON public.forms;
 DROP POLICY IF EXISTS forms_update ON public.forms;
 DROP POLICY IF EXISTS forms_delete ON public.forms;
 CREATE POLICY forms_select ON public.forms FOR SELECT
-  USING (space_id IN (SELECT public.get_user_space_ids(auth.uid())));
+  USING (
+    public.user_has_permission(auth.uid(), space_id, 'forms.manage')
+    OR (
+      space_id IN (SELECT public.get_user_space_ids(auth.uid()))
+      AND status = 'published'
+    )
+  );
 CREATE POLICY forms_insert ON public.forms FOR INSERT
   WITH CHECK (public.user_has_permission(auth.uid(), space_id, 'forms.manage'));
 CREATE POLICY forms_update ON public.forms FOR UPDATE