It's helpful to understand a little bit of how a PDF file works. A PDF file stores a sequence of instructions for what do draw on a page. The instructions are commands, such as "write this text here" or "draw a circle there." When you draw black redaction boxes, you are just appending an instruction to the end of the list ("draw a box here"), but most of the time the previous instructions are all still there. Really,…
A government document can't (shouldn't) be rasterized because it would loose all the tagging information making it non-accessible in a 508 sense. It is however trivial for even a non-technically inclined person to remove the text content through Acrobat's content editing pane. Just as you suggest, things like this seem to be an example of someone in a large organization not quite understanding how the "magic" behind…
Edit: you can pad the redacted box with spaces to keep the formatting consistent.