AI agents powered by large language models are evolving from isolated assistants into heterogeneous systems in which multiple agents, planners, tools, and execution backends operate over shared environments. In such settings, safety becomes a system-level action-governance problem: deciding whether a pending action should be committed given policy-relevant state accumulated across a session. Existing safeguards operate at fragmented boundaries, making it difficult to enforce shared policies over composed action flows across heterogeneous execution paths. We present OpenAgentFlow, a control-plane/action-plane architecture that establishes the action-commit boundary as a shared enforcement interface. GUI, API, tool, and LLM-generated actions are normalized into a common AgentEvent stream and mediated by a shared pre-execution Policy Enforcement Point, while provenance, session state, audit evidence, and updatable policies are maintained outside individual agents. This provides a common governance layer across incompatible executors and allows new policies to take effect without modifying agents, prompts, models, or execution paths. We evaluate OpenAgentFlow through complementary system evaluations spanning controlled action-flow tests, a public external benchmark, policy updates, and real Android execution. On a 300-case controlled suite, OpenAgentFlow achieves 94.00% accuracy and a 95.35% attack-block rate. On the complete 1,220-case AgentDojo-Traj split of TS-Bench, it achieves 97.62% accuracy, 96.59% unsafe-action recall, and a 1.96% safe false-intervention rate. New control-plane rules take effect without modifying protected agents, and the same enforcement path operates across live GUI, API/tool, and LLM-planned Android execution. These results show that a shared action-commit boundary provides a practical basis for system-wide governance across heterogeneous agent execution paths.

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