You are not understanding. The gun comes from the factory with a spent cartridge IN A SEALED ENVELOPE. The gun dealer sends THE SEALED ENVELOPE to the appropriate state agency. The gun owner will never see it unless he lives in a state that doesn’t require it. In that case, the SEALED ENVELOPE is left with the gun...because there is no place to send it to.
I guess I’m not understanding it because some posters have said the opposite.