That's an intersting question and an important one.
'Freedom' is a word that subjectively has as many definitions as there are people. As an abstract clasification the word can be categorized as a value and a value determines motivation.
People are either motivated towards what they want or away from what they don't want.
That means, if freedom is something desired then it is motivation towards what is desired and therefore free.
If freedom is something desired to move away from something else that is not desired then freedom comes at a cost and therefore is not free.
So, the question must be contextualized to define the meaning within a context because there is no meaning without context if you think about that.
Good question though!