I've heard that (after my previous post obviously).
I've also heard that apparently publishers had to pay some kind of postal fee for a first issue so some publishers would just skip #1 issues as a way to trick the post office (mostly fly by night operations that didn't put out a lot of comics so might not apply here).
I believe you're thinking of the "second class postage license" each publication was granted to ship magazines.
Since the publisher had to pay for one for each title, they would try to keep titles similar, even as the magazine changed genres, to avoid paying for a new license.
The classic example of this was EC Comics'
Moon Girl, which became
Moon Girl Fights Crime with #7 as it switched genres from superheroine to gritty crime.
Then, only two issues later, the book became
A Moon, A Girl...Romance! as it became a love comic with #9!
But as of #13, the comic became the sci-fi title
Weird Fantasy, and EC had to finally cough up a new second class license fee!