It doesn’t even have to. Relays can self sensor if there’s a threat. Just look at Phoenix pulling out of the US.
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*censor
*cough* run your own relay *cough*
Most people don’t care about most things but we only need one person to care about something for it to exist on nostr for everyone. If that something is important then someone will care to run a relay for it somewhere.
This is a feature of nostr. Relays can do anything and clients can easily switch