Deterministic vs. LLM-Controlled Orchestration for COBOL-to-Python Modernization

Large Language Models (LLMs) have accelerated the adoption of software development agents, now widely available as Integrated Development Environment (IDE) extensions and standalone applications. While these agents are typically general-purpose, it remains unclear whether specialist agents justify their additional development effort. We investigate this question in the context of business process automation, focusing on the transformation of Business Process Model and Notation (BPMN) diagrams into executable agentic workflows. Since BPMN specifies explicit control-flow semantics, we focus on deterministic workflows in which a fixed process model and inputs uniquely determine the executed path. We introduce a specialist workflow for this task and compare it against generalist agents such as Roo and Cline. Our results show that the specialist solution produces agents that outperform generalist baselines by approximately 9-20 percentage points in tool-use exactness, 2-4x in penalty-adjusted latency, and 3x fewer tool-call errors, while reducing generation token cost by over 95% and eliminating repair iterations. We also find that generalist agents generate code inconsistently in both functionality and quality, limiting their suitability for industrial settings where reliability and maintainability are essential.

Every major LLM agent framework gives the LLM the role of orchestrator; the model decides what to do next, when to call tools, and when to stop. We argue that token explosion, control-flow hallucination, and unreliable completion are not implementation bugs but architectural consequences of assigning the deterministic work of looping, branching, and sequencing to a probabilistic system. A better prompt or a stronger model cannot guarantee the reliability of the LLM agent. We therefore propose Agentic Programming, in which the program governs all control flow, and the LLM is itself part of it, an adaptive component we call LLM-as-Code and invoke only where a task calls for reasoning or generation. Within each call the model keeps full flexibility, but it cannot alter the program's execution path. With control in the program, the LLM's context is built from the execution history's call tree and forms a directed acyclic graph (DAG). Each call's context length is then determined by its call depth rather than by accumulation over steps. A case study of computer-use agents shows that the design is practical, not just a theoretical stance, substantially improving the stability of long visual operation sequences.

Large language model (LLM) agents are increasingly entrusted with natural-language workflow instructions (e.g., retail-payment policies) that specify not only what outcome to achieve, but also which steps, branches, and tool interactions are permitted. When these instructions are supplied as prompt context, however, the model retains control over both procedure selection and step execution. As interactions accumulate, an agent can skip required steps, take unsupported branches, or execute a valid step with unsupported arguments or effects--a failure mode we call workflow misalignment. In this work, we propose COVENANT, a compiler-and-interpreter architecture for workflow-aligned agent execution. Our key insight is to treat workflow instructions as source programs rather than prompts. COVENANT converts the instructions into a workflow abstract syntax tree (WAST) and lowers it to a workflow control-flow graph (WCFG). At runtime, a controller interprets the WCFG one node at a time, checks each proposal against requirements extracted from the instructions before committing controller state or advancing the graph, and returns diagnostic feedback for repair. To evaluate COVENANT, we use 120 cases from three existing benchmarks, spanning seven workflow scenarios. Compared with state-of-the-art LLM agents, COVENANT improves benchmark success from 50.00% to 83.33% and reduces the workflow-misalignment failure rate from 42.50% to 15.83% (62.75% relative). These results show that COVENANT substantially mitigates workflow misalignment, moving LLM-agent alignment beyond isolated prompt following toward reliable execution of complex and multi-step workflows.