Yep that´s the Problem you have at the Beginning. You can only do 2 Things:
1. You build up the Training-Thing where you get +1 or +2 agents and have for 30 Days 10 Civ Industry lesser which you need for buildup
2. You use your 3 Agents you have already with 2 from the Agency and 1 from the Minister
If you use a Mod you can get 4 Spys with the Point 2 Buildup for the Beginning + later 2 from the Training-Center for the Moment.
We will see what get changed with the new Country Pack DLC and Patch 1.10 "Collie" which should come this year and sometime next year between earlyest April to latest December with the big DLC "Unknown" incl. Patch 1.11 "Barbarossa".
I do hope for key changes to espionage. It feels tailored to playing as a spymaster UK and focusing on occupied France, hardly offering anything useful in other situations.
A few suggestions:
>Rework the spy master to no longer be the key for being able to use espionage properly, rather have it give you small bonuses.
>Drastically increase the amount of spies but have the amount scale with your strength. Up to 4 operatives for every country with a sufficiently upgraded intelligence agency, up to 8 operatives if you have a beefy economy (e.g. 50+ free civs).
>Make the Illusive Gentleman advisor less mandatory.
>Cut operation times in half and add an agency upgrade to reduce the impact of enemy counterintelligence, costing 10 factories for each level. Passive defense is a cheap upgrade and so far has no counterplay.
>Allow sabotaging resources/factories on core territory. You can outfit your operatives with plastic explosives but for some reason they need local partisans to blow things up (and without high compliance you hardly get any resources anyway so who cares if your occupied provinces have reduced resource extraction).
>Remove the "Prepare Collaboration Government" operation entirely and replace it with a *non-DLC* way of reducing resistance and quickly increasing compliance. As of right now, the DLC is almost mandatory for specific major powers while screwing over minor nations that can't afford to run an agency and operations. A collab in northern France as Germany bypasses all occupation modifiers from Free France and guarantees instant high payout, while a Balkans Dominance Romania gets hammered by resistance and is almost forced to puppet.