I'm in active regular dialogue on this issue with Canada's four largest provinces, so I can speak with direct knowledge of it.
The nature of freedom to operate is that it's non-rivalist, which means I can give you my freedom to operate and it costs me nothing, so it's the perfect opportunity for federalism. Different provinces will compete with their agencies because it costs nothing for, say, Ontario to share its freedom to operate with Alberta and with their institutional approach if Alberta reciprocates; and the federal government can provide a blanket.
You can never have too much freedom to operate. All you do is create the institutional asset, which is the freedom to operate, and make it available to domestic companies on the technical forms of transfer. It's a perfect opportunity for federal-provincial co-operation, especially because of those shared granting responsibilities to research. It's so easy to fix.