This article analyses the ways in which a policy actor constructs its agency through the production of knowledge. Taking the example of the concept of "autonomy" as constructed in the discourse of the European University Association (EUA), the article draws on the theory of discursive framing and agenda setting, as well as on Meyer and Jepperson's heuristic of agentic actors, to show how the practice of knowledge production can shape the European higher education policy. The article offers a contribution to the debate aiming to develop a more critical perspective on the development of the European Higher Education Area, which sees the process as constituted through the activities of, and the negotiations between, different political actors.