NaCl films on Cu(311) exhibit a remarkably strong and localized binding between adlayer and substrate. The binding sites of the ions in the NaCl film with respect to the Cu surface are determined from atomically resolved scanning tunneling microscopy images. A new model is proposed in which the binding mechanism is controlled by the charge modulation of a regularly stepped surface due to the Smoluchowski effect. This model can be extended to explain the growth of ionic adlayers on regularly stepped and kinked metal surfaces in general.