If tenure was designed with the expectation that it would allow, or even force faculty to take positions that were sometimes contrary to those of the administration, I haven’t found that to be true. The fear of retaliation by a superior is just as great today as it was before tenure was adopted. People who will take a stand on an issue seem to me to be ones that will do so regardless of a support system like tenure. Those who will not take a position on an issue, and that is by far a majority of academics, remain timid and shy even though tenure supposedly protects them.
My conclusion is that tenure does not have the effect of pushing those who have strong feelings against the administration policies to express those differences. Rather, the effect of tenure makes it nearly impossible for a higher education institution to remove the incompetent and unproductive faculty who prevent the institution from moving forward.
Remember that tenure creates a lifetime employment contract between the university and the professor which in all reality cannot be terminated by the university.