Don't take offence Atlantis. You and WifiBandit are the goto posters for consistent and accurate copies of WT documentation. It is because the style and even the typeface of this document is not anything like a standard letter to all BoEs from the Branch that questions are being asked.
It is unusual but there is no reason to discount the possibility that this is a letter from an HLC overseer or CO to a smaller group of congregations (e.g. circuit) and if you were able to post the header and footer then all would become clear. I understand you cannot do so to protect the source but a little more description of the context would help clarify things.