When a multi-agent system changes its team, it also changes the messages and final answer it produces, so an end-to-end accuracy gap does not by itself identify a routing effect. We introduce method, an evaluation contract that fixes a public information boundary, downstream stack G, and finite legal team family before outcomes are generated. Complete coverage identifies exact finite-benchmark oracle regret conditional on that stack. For any finite collection of frozen policies, executing the union of their distinct selected teams is the minimal assumption-free support for every pairwise policy contrast, though not for absolute oracle regret. Two controlled tables with source-ID-disjoint splits test the instrument. On MuSiQue-12, a pre-specified privileged positive control improves regret from 0.532 to 0.402; a later public-interface control reaches 0.424 versus 0.554 but is retrospective. On HotpotQA-4, a pre-specified public direct scorer improves regret from 0.313 to 0.110. In fixed-stack Llama execution, verified route regret improves by 0.190, while the raw-answer gain is 0.010 with an interval crossing zero. A five-family ToolSandbox variant-shift validation exhaustively evaluates 16 declared teams on 14 untouched task variants (224/224 valid rows): the declared-family oracle reaches 0.768 safe-evidence completion, while the prospectively frozen router gets 0.637 (regret 0.131), failing the predeclared 0.10 criterion. A later retrospective comparator reaches 0.655, matching all-workers with 4.57 versus 5.00 workers on average. Thus COVER exposes selection headroom without manufacturing a routing win. A crossed-stack diagnostic shows absolute scores depend on G but finds no detectable router-by-finalizer interaction. COVER is an auditable measurement methodology, not a claim of stack-invariant or universal agent-routing superiority.
Empirical Bayes (EB) estimators can match the first-order asymptotic risk of maximum likelihood (ML) while behaving very differently at second order: recent excess mean squared error (XMSE) analysis shows that kernel-based EB estimation may be worse than ML when the kernel is poorly aligned with the true parameter. This paper turns that diagnostic into a design principle. We propose an XMSE-aware mixed estimator that interpolates between ML and EB shrinkage. Its fixed-weight XMSE is a scalar quadratic, yielding a closed-form oracle mixing weight that is no worse than both ML and the base EB estimator at the XMSE scale. A plug-in implementation based on finite-sample XMSE approximations is proved consistent, with a second-order oracle regret rate for an interior oracle weight. We further establish a transfer of the regret bound to the fixed-weight risk curve evaluated at the selected weight, a thresholded boundary rule, and extensions to compact kernel families and to finite and growing kernel dictionaries with high-probability oracle bounds. Finite impulse response simulations with SURE-tuned, hard-selection, and trace-corrected baselines, together with the public Silverbox and Cascaded Tanks benchmarks, show that the proposed estimator retains most of the benefit of regularization when it is helpful and retreats toward ML under kernel misspecification, with an identified finite-de analyzed on the benchmarks.