Authority decides. The people underneath agree because they fear the consequences of rebuttal. They’re also afraid to decide for themselves.
But the powerless are also valid decision-makers. They just have to express themselves, no matter how unpopular or misunderstood.
“Every decision is liberating, even if it leads to disaster.”- Elias Canetti
Decision-making is a social contract. Real authority rules as an aggregator of viewpoints rather than with an iron fist, but only if the minority speak up.