The problem is not so much that we do not understand agency but rather agency is pluralistic, that at any given time there is more than one agent. The interaction of two agents is what we commonly call cooperation or by some similar terms and statements which entail two objects or things.
An example is when two people love each other or marriage. The agreement between them to act in a certain way is termed love. It is not a passive process but always entails active processes.
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