I don't see why we should be coming up with a definition of freedom/agency in the way you have suggested. People are free to create what they want to but should be constrained in their ability to impose those on others.
I am not sure where you are going with this. If there is a politician/a company that has developed mass surveillance or manipulation tech I would not want them to have the freedom to bypass the 'deployment constraints'.
Picking what types of agency people/organizations must have and what types they must not have is a pretty shaky endeavour, philosophically. It might not even be possible to prevent 'cross contamination'.