We should differentiate a service tech bulletin vs a service action..... You are correct for a service bulletin , owner has to complain about it before they will do it. A service action though is something that is supposed to be done on every car , whether it's in stock or there is a customers car when it comes in for normal service .......ratcheting that up one level is a recall and that is they got to bring in now. So it depends on the communication and direction of the mfr....
People get all upset when dealer tells you got to complain about it before they will fix it. From a manufacturer POV, I completely understand that a person that doesn't hear his window rattle, there is no reason to go fix it if it's not bothering him. People don't like that but that's the way it is in the business, and a valid business practice.