I wondered the exact same thing at the time, that is why I removed the tag to check into it deeper as seen in the bottom photo.

The tag has paint on both sides except where it was contacting the body when bent up for paint.

If it were laying flat it would only have paint on one side.

If then mounted & painted again, the over spray would have gotten on the bare area in the 2nd coat.

To me the evidence suggests that a second tag was laying there flat in addition to the tag already screwed to the car.