I heard from some people who communicated with Richard Arnold (Roddenberry's aide back in those days) that at some point Paramount relieved Roddenberry of his rights to TOS. Whether that meant his royalties were threatened was never clear to me, and I had to wonder about the accuracy of the story. I brought this up because it made me wonder if Roddenberry lost control of the STAR TREK franchise in some fashion, and TNG was his way of re-asserting himself as The Boss.
I thought he'd sold off any remaining owership rights he had to Star Trek at some point in the seventies, which is why Paramount were able to jettison him from the film series so easily. He was only retained as "creative consultant" as a matter of courtesy.
They didn't have to bring him back to make TNG, but apparently none of the suits at Paramount were sure what to do about it. They knew they wanted a new Star Trek TV show, but didn't have a clue what form it would take. Roddenberry was brought back on because there was a sense that only he knew how it worked. It was one thing making films based on established characters and settings, but something new required some GR magic.
IIRC, the Los Angeles Times magazine did a wonderful story (written by Sheldon Tietelbaum) in 1990 or '91 about TNG, and it echoed some of the findings of Cinefantastique magazine on the subject. Roddenberry supposedly asserted a stricture of "drama without conflict", wherein the sarcastic wit and argumentative bickering and other cyncial banter between senior officers that became a trademark of TOS (some of the most memorable lines of TOS between Kirk, Spock and McCoy) was banned from TNG. There were critical remarks made by former TNG writers, Tracy Torme among them, who questioned the wisdom of Roddenberry's alleged policy. (And I'm putting it politely.) I seem to recall the derive use of the term "Mouseketeers" to slam TNG.
Hadn't be basically alienated the entire writing staff by the end of the first season? David Gerrold left very early on, after finding that instead of being the head writer, he was just a story editor, and clashing with Roddenberry over scripts, culminating in Blood and Fire. Tracy Tormé was very critical of the direction the show was taking, and didn't get on with Roddenberry or Hurley.
Then Maurice Hurley pissed off most of the cast and crew in the second season, and things didn't settle down until Michael Piller came on board in the third season. It seems Roddenberry's day to day influence was declining around that time as well, and Piller was able to act as a conduit between the writing staff and Roddenberry's memos, creating a more happy and creative environment.
But he said himself in FadeIn that he had become the new Roddenberry for the writers on Voyager, with some of them refusing to come back if he remained Executive Producer after the second season.
The thing that confused me about this "drama without conflict" notion was the appearance of Diana Muldaur as Dr. Pulaski. She reminded me a great deal of my favorite TOS character, and smartass extraordinaire, Dr. McCoy. I thought she was a breath of fresh air for TNG, but then she only lasted for one year. It made me wonder if there was something to those articles.
Yeah, it does seem at odds. Maybe after the behind the scenes turmoil of the first season, he was throwing a bone to the writers, allowing them to add a bit more conflict between the characters. She's basically a McCoy clone, who in turn was the same basic doctor character that had always been in his drafts, be it as Boyce, Piper or McCoy. Playing it safe perhaps?