anchor: As we said in Rosenberger, [w]hen the government disburses public funds to private entities to convey a governmental message, it may take legitimate and appropriate steps to ensure that its message is neither garbled nor distorted by the grantee.
positive: The government has to ensure that the message sent by the grantee isn't garbled nor distorted, and keeps with the governmental message.
negative: The government can disburse public funds to private entities, and those grantees can do whatever they want with them.