anchor: The latitude which may exist for restrictions on speech where the govern-ment's own message is being delivered flows in part from our observation that, [w]hen the government speaks, for instance to promote its own policies or to advance a particular idea, it is, in the end, accountable to the electorate and the political process for its advocacy.
positive: Sometimes the government speaks only to promote its own policies.
negative: The government's message is not currently being delivered.