Bob is a little off on that answer. A 5 pound CO2 tank holds 5 pounds of liquid.
Your tank should have a Tare Weight stamped on it. You can place the tank on a scale and subtract the Tare Weight from the reading. That will tell you how much CO2 is in the tank.
A CO2 cylinder is filled to 68% of the water weight capacity of the tank. A 5 pound CO2 cylinder holds 3.4 liters of water which weighs 7.4 pounds.
7.4 * 68% = 5 pounds.
The 32% "empty" space is there to allow for expansion due to temperature.
If your gas supplier charged you for a 5 pound fill, and only put 2.2 pounds in, then they shorted you.
Do not be concerned with the steel tank. They are perfectly safe to use.