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But these reloads are for personal use and were not manufactured to be sold. And I am selling them at loss, neither profit nor livelihood by any means.
How can it be considered a business if you are selling at a loss?
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I'd imagine because some unscrupulous persons might feign "personal use" and "not at a profit" as a smokescreen to conduct business without a license. Without sufficient staffing to police every example the BATFE drew a line in the sand. Unfortunately, honest folks such as yourself are sometimes positioned on the wrong side of this line.