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Basically, what is going on with this is that Napoleon uses the sheep's bleating to drown out anyone else who is trying to speak. That is, he has the sheep drown out anyone who wants to say anything that goes against what Napoleon himself thinks.
You can see this first in Chapter 5. In that chapter, Napoleon has the sheep bleat this in the middle of Snowball's speeches. Later on in the chapter, after Snowball has been chased off the farm, Napoleon has the sheep bleat to drown out anyone who wants to say that Snowball hadn't been bad.
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