the only thing I could think he means is the foreign speaking congs where there is such a short supply of elders and servants that even newly baptized ones have the chance to progress up the wts ladder
The short supply of Elders is somewhat addressed also:
Since the collapse of the Soviet Union, the Witnesses no longer operate underground there. Table 3 shows their growth in the nations of the former Soviet Union since 1990-they have been growing at the remarkable rate of about 30% per year. The Yearbook (1996: 51) reports that there was only one congregation in Moscow in 1990, compared with 40 in 1995. Moreover, these congregations are far larger than the Witnesses prefer, as the Yearbook
explained "almost all of these could be divided into 2 or 3 congregations if more elders were available". The Yearbook noted that in Murmansk, a congregation having 800 publishers cannot be divided "because there is only one elder". This is because no one else has been a member for more than a year and the Witnesses are reluctant to place leadership responsibilities on someone with so little experience.