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The extraordinary reach of the directive's system of censorship is not surprising. Government officials cannot be certain in advance of examining a manuscript whether it contains sensitive information. Those accountable for failing to censor information that might be used to the detriment of the nation's security interests are thus necessarily inclined to review a broader area of expression than might be restrained through actual revision or deletion of restricted information. Even if the implementation of prior review agreements does not spread - and all previous experience with Government restraints teaches us the opposite - the mere existence of the censorship system is repressive. Uncertainty as to whether any particular manuscript should be submitted to a Government agency for prior review can only inhibit the pursuit of intellectual and political truth.