I believe that when the hobbits are not present, we get a more objective
narrative, without hearing anyone's inner dialogue. We only get clues
about what the Rohirrim or Gandalf or Aragorn or Legolas or Gimli are thinking
from what they say and do.
Whereas with the hobbits, we hear what they think, privately, even when, for
example, Merry is unconscious and Pippin cannot speak to him. So in that
sense TT is consistent. Even when the hobbits are not present, they are
the narrators, and do not pretend to know what anyone was thinking, but only
what others heard them say, or saw them
do.
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"‘I think he was a silly little man,' said Councillor Tompkins. ‘Worthless, in fact; no use to Society at all.'
"‘Oh, I don't know,' said Atkins, who was nobody of importance, just a schoolmaster. ‘I am not so sure: it depends on what you mean by use .'
"‘No practical or economic use,' said Tompkins. . . .
. . .
"‘It is proving very useful indeed,' said the Second Voice. ‘As a holiday, and a refreshment. It is splendid for convalescence; and not only for that, for many it is the best introduction to the Mountains. It works wonders in some cases. I am sending more and more there. They seldom have to come back.'"
