In our contexts, we're only passing the canonical URL of the Questionnaire.  However, when we hit the DTR Questionnaire operation, we're getting back the full Questionnaire as well as associated Libraries and ValueSets.  

There's implication based on the listed contexts that the system can search for Library, but there's no implication about doing the same for ValueSet.  Also, a bunch of separate searches isn't super-efficient.  Given that we can return a Questionnaire 'package' for an order.  Is there a reason why we shouldn't adjust the operation to be able to take a Questionnaire canonical instead of an order.

In any event, we need to be explicit about the mechanism(s) by which the relevant ValueSet(s) and Library(ies) are to be retrieved - operation, individual queries, batch with a bunch of queries, etc.  (Note that there's no way to retrieve multiple value sets or Libraries with a single query if they're version-specific.)  My recommendation would be using the operation.  It already has to exist - expanding it to run off a Questionnaire canonical should be simple, and doing so eliminates the need for a bunch of scopes and capabilities on the payer server.

Once this is done, we need to ensure that the CapabilityStatements and the expectations around launch contexts take these requirements into account.