In "business" you usually don't have the legal authority to arrest, try and imprison would-be "competitors".
True, but they cannot arrest and, try, and imprison competing foreign mints. And since they consider their collector programs to be for profit ventures (I think) they can lose money on one to bolster sales overall.
They would never be able to prove those losses bolstered sales overall. They don't have to ever take a loss on something to bolster sales, they just need to get more creative with mint marks and finishes or just better designs. Over all their biggest clients are the big dealers anyway
Well no retailer can ever prove conclusively that loss leaders alone improve sales. The results have to be in the overall health and profitabity of the collective programs. But since you and I cannot really influence their actions we are probably kicking a dead horse. Onward and upward to a different topic. Good debate and good luck.