diff --git a/modules/mesh-grants/grants_test.go b/modules/mesh-grants/grants_test.go
index 03acd28..c2b8bb6 100644
--- a/modules/mesh-grants/grants_test.go
+++ b/modules/mesh-grants/grants_test.go
@@ -406,6 +406,28 @@ func TestGrants(t *testing.T) {
 				}
 			})
 		}
+		// A module whose only runtime-loaded part is a helper bundle (route-proxy's route-provider) says `loads` in
+		// the repository manifest's build.artifacts; the indexer's manifest has no derived Bundles (issue 1945).
+		for _, row := range []struct {
+			name, build string
+			carried     bool
+		}{
+			{"a bundle that says loads is carried by node-tools", `,"build":{"artifacts":[{"name":"helper","kind":"bundle","language":"go","system":"arch","from":"cmd/h","binary":"h","loads":["h"]}]}`, true},
+			{"a module with no loading bundle is left to its own account", ``, false},
+		} {
+			t.Run(row.name, func(t *testing.T) {
+				b := fixture()
+				b.manifestOf("mod-z", `{"module":"mod-z","version":"1","own-secrets":{"broker":"/var/lib/z/broker"}`+row.build+`}`)
+				b.assign("a", "mod-z")
+				b.manifestOf("node-tools", `{"module":"node-tools","version":"1","own-secrets":{"broker":"/var/lib/nt/broker"}}`)
+				b.assign("a", "node-tools")
+				users := shadowOf(t, b)
+				tools := users[slices.IndexFunc(users, func(u grants.User) bool { return u.User == "a.node-tools" })]
+				if got := slices.Contains(tools.Subscribe, "mesh.mod.mod-z.tool.>"); got != row.carried {
+					t.Errorf("a.node-tools subscribes to mod-z's tools = %v, want %v: %v", got, row.carried, tools.Subscribe)
+				}
+			})
+		}
 		b := fixture()
 		users := shadowOf(t, b)
 		y := users[slices.IndexFunc(users, func(u grants.User) bool { return u.User == "b.mod-y" })]
diff --git a/modules/mesh-grants/internal/grants/records.go b/modules/mesh-grants/internal/grants/records.go
index 94beb82..e53beab 100644
--- a/modules/mesh-grants/internal/grants/records.go
+++ b/modules/mesh-grants/internal/grants/records.go
@@ -101,11 +101,7 @@ func declaredFor(m catalogue.Manifest, seats map[string]catalogue.SeatDeclaratio
 		Streams: streamsOf(m), Queues: queueOwnersOf(m), Processes: processesOf(m), Checks: catalogue.HealthChecks(m),
 		RunsAs: m.RunsAs, Issued: issuedTools(m),
 	}
-	for _, b := range m.Bundles {
-		if len(b.Loads) > 0 {
-			d.Loads = true
-		}
-	}
+	d.Loads = loadsABundle(m)
 	if _, reads := m.OwnSecrets["broker"]; !reads {
 		d.NoAccount = true
 	}
@@ -129,6 +125,38 @@ func declaredFor(m catalogue.Manifest, seats map[string]catalogue.SeatDeclaratio
 	return d
 }
 
+// loadsABundle says the node's tool runtime loads a bundle of the module. The controller reads it from the resolved
+// manifest's Bundles, which a build derives and the indexer's manifest does not carry (the builder's build record names
+// the repository's manifest digest), so the same answer is derived here from `build.artifacts` by mesh-sdk's rule
+// (the build's own rule for what a bundle loads): a bundle that says `loads`, else every bundle of a module that declares tools and that no
+// resource of the module runs. Without it a module whose only runtime-loaded part is a helper (route-proxy's
+// route-provider) was left out of node-tools' grants (issue 1945).
+func loadsABundle(m catalogue.Manifest) bool {
+	for _, b := range m.Bundles {
+		if len(b.Loads) > 0 {
+			return true
+		}
+	}
+	if m.Build == nil {
+		return false
+	}
+	run := map[string]bool{}
+	for _, r := range m.Resources {
+		if a, ok := r["artifact"].(string); ok && a != "" {
+			run[a] = true
+		}
+	}
+	for _, a := range m.Build.Artifacts {
+		if a.Kind != catalogue.ArtifactBundle {
+			continue
+		}
+		if len(a.Loads) > 0 || (a.Loads == nil && len(m.Tools) > 0 && !run[a.Name]) {
+			return true
+		}
+	}
+	return false
+}
+
 func waitsOf(m catalogue.Manifest, seats map[string]catalogue.SeatDeclaration) []buscompose.Wait {
 	var out []buscompose.Wait
 	for _, w := range m.Waits {