Freedom is never a terminal value. If you dig a bit, you should be able to explain why freedom is important/essential in particular circumstances.

Ironically, the appearance of freedom can be a default terminal value for humans and some other animals, if you take evolutionary psychology seriously. Or, to be more accurate, the appearance of absence of imposed restrictions can be a default terminal value that receives positive reinforcement cookies in the brain of humans and some other animals. Claustrophobia seems to be a particular subset of this that automates the jump from certain types of restrictions through the whole mental process that leads to panic-mode.

The abstract concept of freedom and its reality referent pattern, however, would be extremely unlikely to end up as a terminal value, if only even for its sheer mathematical complexity.