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Well, my personal opinion is also that indeed, the Western wind was Manwe forbidding Saruman's return. But perhaps he not only denied him the return, maybe he banished Saruman from the West of Middle Earth as well. It was now free of Darkness (on a large scale anyway, for the time being) and Saruman's spirit had no business left there. It would be a sad fate--but perhaps proper punishment--for a once-powerful being to exist somewhere as a shadow of its former self, passing endless days. Who knows, maybe no "high orders" ever came regarding what to do with Saruman, he was now a useless, deprecated tool and the only thing that was clear is that the way West was closed for him. But I don't think that those up high in the food chain considered him anywhere near the same level of vileness as, for example, Sauron. Breeding his warriors may have been the only "major" offense of his, but even so. He wasn't the first one to do something similar, on him lies the fault of a follower, not the inventor. My general impression of Saruman is that he was cast aside more as a dangerous (very dangerous...) nuisance rather than evil itself. In my opinion having him meekly exist somewhere nowhere in Middle Earth only retaining memories (if that) of his former self and power seems appropriate.
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