diff --git a/packages/nuxt/src/core/app.ts b/packages/nuxt/src/core/app.ts
index 459c638a31..bb6b6e6925 100644
--- a/packages/nuxt/src/core/app.ts
+++ b/packages/nuxt/src/core/app.ts
@@ -126,9 +126,7 @@ async function resolveApp (nuxt: Nuxt, app: NuxtApp) {
   }
 
   // Resolve plugins, first extended layers and then base
-  app.plugins = [
-    ...nuxt.options.plugins.map(normalizePlugin)
-  ]
+  app.plugins = []
   for (const config of nuxt.options._layers.map(layer => layer.config).reverse()) {
     app.plugins.push(...[
       ...(config.plugins || []),
@@ -141,6 +139,14 @@ async function resolveApp (nuxt: Nuxt, app: NuxtApp) {
     ].map(plugin => normalizePlugin(plugin as NuxtPlugin)))
   }
 
+  // Add back plugins not specified in layers or user config
+  for (const p of nuxt.options.plugins) {
+    const plugin = normalizePlugin(p)
+    if (!app.plugins.some(p => p.src === plugin.src)) {
+      app.plugins.unshift(plugin)
+    }
+  }
+
   // Normalize and de-duplicate plugins and middleware
   app.middleware = uniqueBy(await resolvePaths(app.middleware, 'path'), 'name')
   app.plugins = uniqueBy(await resolvePaths(app.plugins, 'src'), 'src')