I've worked on similar types of operational systems in the past. The access control is always extremely limited in the prototypes.
It is important to understand that the customers don't have a clear view of the types of access controls they want until they start field exercises. By having relatively limited access controls in the prototype, they discover in real use cases that allowing some data access which never would have occurred to them is highly valuable which can then be refined into specific types of data sharing. In a default locked down environment, these beneficial interactions would never be discovered because they can't occur. All of the ways the users access and use data in the prototypes is logged and studied.
Similarly, other types of data sharing expose real risks that can be reduced to specific scenarios developed during operational exercises. The problem with an exhaustive access control model is that it simply has too many degrees of freedom to be usable for most people.
During development, the universe of all possible uses of access control is reduced to a much simpler and more understandable model of the key data it is important to restrict and the key data it is important to share, grounded in real-world operational learnings. These models are simpler and more precise to implement, and also easier to verify the correctness of, than a default "access control all the things" approach.