"I call BS. If congregations are found to be ordering extra magazines they're going to get a good "talking to" by the CO when he comes. The current arrangement is that the study issues are just like the Kingdom Ministry. The congregation orders the number it needs and NO MORE. A visitor can look on with someone else if they choose, or maybe a slacker JW didn't get theirs yet and there's an extra or two lying around in back, BUT THAT'S NOT THE PROPER THEOCRATIC ARRANGEMENT."
Congregations are supposed to have some extras on hand during the Sunday lesson, and if they don't have actual magazines then they will normally just scan some copies on the copy machine (that has always been the arangement). That is why the attendents will often stand at the back with those extra copies in hand and bring one to anybody who is in need.