That is correct for grey market stocks the market makers can not "make a market". that is, they must have a firm order from a broker before executing the trade. Therefore there is no incentive for them to carry inventory. The backside is that there is no guarantee for "best" execution and any execution of retail orders is slow at best.
It took me half of yesterday to get filled at 0.025 and while I waited there were orders at 0.022 and 0.028 getting filled all around me
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