You are contradicting yourself a bit.
First you say "the one thing agents don't have is agency" but then "to make their own top-level decisions".
Well, which one is it? If they don't have agency, then it's impossible for them to make top-level decision on their own.
Fair point. Maybe I'm arguing that they shouldn't be given agency, because all they can do is simulate it poorly.
Or... maybe it's that they can't have true agency, because it doesn't make sense to tell a big ball of floating point numbers to make decisions about how it plans to have impact in the world. It can't do that, even if it can play-act doing so.