That is, if they happen to not find paying customers for all their reusable launch fleet, this is a way for it to not stand around idle.
Under this theory, paying customers will always get precedent over throwing up another 44 satellites.
The government grants monopolies (patent) on very important things (drugs and treatments for all sorts of things) and then lets companies charge different rates to different customers - even higher prices to the uninsured. It seems unlikely they'd make SpaceX launch for a competitor at anywhere near their own cost. But then politics....
I mean if they have Boeing, NASA, etc. as paying customers at a standard $X they can't just go "Well Google you're launching a competitor to us so we're gonna charge you 20 * $X instead to prevent you from launching".