My theory?
Bob from Dept of ED shoots 3-gun with Joe from the IRS.
Bob "That's a sweet shotgun Joe"
Joe "It was free. All you need to do is fill out Form 1111.3.A6C and submit it to general procurement. Its best if you get 8 of your buddies together, because they only procure them in lots of nine. They don't ask any questions, just ship a crate of them to your door."
At least that's what I hope is going on.