It depends. Relays are the Achilles' heel of nostr. They store and forward, often unencrypted, data. That makes them a target for censorship. It is a difficult, shifting target, but it does give governments someone to punish.

They can target authors of client software as well, but that doesn't stop the software from proliferating.

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“Governments are good at cutting off the heads of a centrally controlled networks like Napster, but pure P2P networks like Gnutella and Tor seem to be holding their own.”