The term recall has specific legal meaning that differentiates it from other notices like TSBs. A recall must be issued when an issue brings a vehicle out of compliance with FMVSS (the regulations determining what's road legal). Manufacturers and dealerships are not allowed to sell vehicles with outstanding recalls, and they're usually required to fix recalls regardless of warranty status for affected consumers. It doesn't say anything about the actual solution (which might be as trivial as a new manual), only the legal responsibilities that come with the notice.