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Isn't Orkish free will down to whether they have their origins in Elves or Men - which Tolkien was unsure about at the end- as only men have true free will, according to Ainulindale. Only Men are not bound by the Music, which is fate to all other creatures within Arda.
It seems then, that the role of Valar, Maiar & Elves is to actualise the Music, not to change it. The Music with its contradictory themes is being played out in Arda, but Men can (with the agreement of Illuvatar - for none can change the Music in his despite) change the Music.
Orcs decended from Elves cannot change the Music, so the extent of their freedom of action would be limited. Orcs decended from Men would have perhaps too much free will for Morgoth or Sauron (themselves unable to change the Music) to be comfortable with them as servants.
Does that make sense?
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