It seems obvious that most of the universe is made up of non-paper, just as most of it is unfortunately made up of non-chocolate, but that apparently is not what it means.

non-paper n. an off-the-record or unofficial presentation of (government) policy.

For citations etc. see: http://www.doubletongued.org/index.php/dictionary/non_paper

(re: 1984 citation)

Wouldn't you set out a non-position in a non-paper?

Mostly non-sense, I think.

zackly