I think they're using "the congregation" to mean "the governing body," but they don't want to be too overt (for outsiders, perhaps?). The GB doesn't hide their belief that they are the only reliable conduit to God's guidance and to Biblical understanding. From very early on, the WTS has put the human leadership between God and the membership, so that only the person/people at the very top can interpret Scripture.
So whenever there is a question about policy, they will often refer to "the congregation" or "the organization" instead of referring to the Bible directly. It's a bit surprising that they don't just admit that the "view" that matters is the one from the human leadership-- it's not as if they aren't perfectly clear about the importance of the hierarchy of the organization on policies and beliefs.