I mean if you're arguing technicalities then sure, I guess. My point is that there's a clear distinction between personal opinions of individuals and public opinions made on behalf of another entity like the government. You could argue otherwise, but I consider the latter to be an action because it's a job that you carry out rather than an expression of personal opinions. The speech itself isn't what makes such cases considered as actions imo, the difference is in the context of the delivery.
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