The bags are given to all attendees. The only time any would miss out is if attendance was far greater than expected. We estimate final at-the-door attendance based on the number of pre-registration received when pre-registration closes.
All bags have a con book and pocket program guide.
However, many items in the con book are provided as freebies by industry. In some cases, they are placed there as advertising. In both cases, the items are produced/printed/provided to us by an outside source and we don't have control over the number they give us, so we give away what we have.