A completely filled CO2 tank is filled to 68% of it's water capacity, in other words, a 5# CO2 tank filled with 5# of CO2 will be 68% full of liquid CO2. But some refillers misread the standard and only fill a 5# CO2 tank to 4#, shorting their customers by 1#.
But this is not likely what is going on with your fills. More than likely the person doing the filling is transferring liquid CO2 from a inverted larger tank or a tank with a dip tube with a simple valve system. While this can be a good way to top off a 5# CO2 tank at home, it's impossible to get a accurate fill this way. So, intentional or not, the person filling this way is shorting his customers.
A fill station and scale are the only way to properly fill a CO2 tank. At risk of being bashed for linking to my web site because some call this marketing, here is Catalina Cylinders CO2 filling document. I would have attached the document but it's too large.
http://www.kegkits.com/CO2/filling.pdf