Sentence:  The picture of the Commission as a 'blind driver' and the agency as 'directions-giving passenger', which has been created in the context of the relationship Commission-EFSA, may be excessive with regard to RTS, but it <WSD>scenarises</WSD> well that the RTS are "de facto" made by the ESAs. 
Meaning of the word marked with <WSD> tags:  To generate a scenario to illustrate an idea.