I doesn't "make sense" because we have not seen the report yet. Don't make the mistake of assuming the report is empty, just because you have not seen it. We have no idea: It could contain a list of names and details of every crime documented. Indictments so far were just Mueller's team using standard prosecutor MO for getting information. We know there are a lot more criminals and crimes, so for now I would assume that all that info is in the report.