# Progressive Skill Discovery as Access Control for Tool-Using LLM Agents: Structural Governance through Role-Scoped Capability Delivery

arXiv: https://arxiv.org/abs/2609.28693 · HTML: https://mlsanity.com/paper/2609.28693/

## Key facts

- No citing papers in the map yet (data through 14 Oct 2026).
- Placed in Agent skill learning and evolution, one of 16 directions in LLM agents and tool use.
- Builds on 12 of its 31 references that are in the map.
- First posted on arXiv 23 Sep 2026.

## Placed in

- LLM agents and tool use / [Agent skill learning and evolution](https://mlsanity.com/agents/agent-skill-learning-and-evolution/)

## Builds on (most cited first, 12 of 12)

- [ReAct: Synergizing Reasoning and Acting in Language Models](https://mlsanity.com/paper/2210.03629/) (2022)
- [Toolformer: Language Models Can Teach Themselves to Use Tools](https://mlsanity.com/paper/2302.04761/) (2023)
- [Lost in the Middle: How Language Models Use Long Contexts](https://mlsanity.com/paper/2307.03172/) (2023)
- [AutoGen: Enabling Next-Gen LLM Applications via Multi-Agent Conversation](https://mlsanity.com/paper/2308.08155/) (2023)
- [Gorilla: Large Language Model Connected with Massive APIs](https://mlsanity.com/paper/2305.15334/) (2023)
- [SkillsBench: Benchmarking How Well Agent Skills Work Across Diverse Tasks](https://mlsanity.com/paper/2602.12670/) (2026)
- [Which Agent Causes Task Failures and When? On Automated Failure Attribution of LLM Multi-Agent Systems](https://mlsanity.com/paper/2505.00212/) (2025)
- [Agent Skills for Large Language Models: Architecture, Acquisition, Security, and the Path Forward](https://mlsanity.com/paper/2602.12430/) (2026)
- [Agent Skills: A Data-Driven Analysis of Claude Skills for Extending Large Language Model Functionality](https://mlsanity.com/paper/2602.08004/) (2026)
- [Organizing, Orchestrating, and Benchmarking Agent Skills at Ecosystem Scale](https://mlsanity.com/paper/2603.02176/) (2026)
- ["Do Not Mention This to the User": Detecting and Understanding Malicious Agent Skills in the Wild](https://mlsanity.com/paper/2602.06547/) (2026)
- [RAG-MCP: Mitigating Prompt Bloat in LLM Tool Selection via Retrieval-Augmented Generation](https://mlsanity.com/paper/2505.03275/) (2025)

## Abstract (arXiv)

Large Language Model (LLM) agents struggle to scale safely when exposed to vast enterprise toolsets. Providing an agent with access to every internal tool leads to oversized context windows, degraded tool selection, and severe governance vulnerabilities - as system policies defined purely in prompts remain probabilistic advice rather than hard constraints. Existing mitigations, such as multi-agent domain delegation, decentralize audit logs and fail to guarantee policy compliance across sessions. We introduce skilder, a framework that packages capabilities into roles: bundles of skills, tools, and instructions, together with the limits that bound them. An agent begins with a minimal role catalog, learns the roles a task requires, and receives each role's skills, instructions, and tools through a single MCP server. Because tools reach the agent only inside learned skills, the same server enforces the scope of what was learned deterministically. We evaluate skilder against flat-context tool selection and multi-agent orchestration across 13 tasks using six models (10 runs each). Our results show that, when models completed discovery and issued a governed call, the skilder simulated authorization layer enforced governance boundaries: no unauthorized tool call or parameter violation (e.g., a spending-limit breach) executed. Aggregate task pass rates also reflect whether each model followed the discovery protocol and satisfied response-quality checks; those misses are not authorization failures. Furthermore, by allowing agents to dynamically acquire cross-role capabilities mid-task, skilder preserves problem-solving flexibility while providing hard system-level enforcement.