Let me get this straight ( I left long before the tax avoidence...errr donation arrangment took effect) ... a publisher has to "buy" the literature then sell... err place the literature (assuming he found a sympathetic housholder) and finally remit the proceeds to the Borg?
Technically speaking, since it is all on a "donation" basis, the person does not have to donate any money at any time... but at the same time the people behind the literature counter do not have to give a person anything either.
When I was working behind the literature counter I received explicit instructions to withhold requested items if I noticed that they had not donated for past items or if they requested a large number of expensive items.
Bottom line: They ain?t gonna give you nothing if they don?t see you "donating".