The question at hand is one of those imponderables that are supposed to make your brain hurt because they are to painful to comprehend. However, in real life, this question is very easily answered.

As we all know, Teflon is extremely slippery; this is because of a layer of negatively charged fluorine atoms on its exterior which try to repel materials that come in close contact. Therefore, it cannot be chemically bonded to anything. However, it can be physically bonded.

This is done by first sand-blasting (actually grit-blasting in this case, but we're generalizing) and then blasting the rough surface with a powerful jet of Teflon powder. The polytetrafluoroethylene molecules get wedged in the pits of the roughened surface.

Due to this process, in a Teflon-coated pan, not all of the exposed cooking surface is coated and so sometimes things will still get stuck to the pan. And, since it's a physical bond, the surface can slowly lose this Teflon deposition over time and with it its non-stick properties, though is this not common.