A man behind a counter looks on as two men on the other side of the counter fill out forms.
A man behind a counter waiting for two men to finish.
Just because a man looks on as two other men fill out forms doesn't necessarily mean that he is waiting for them to finish. He could be helping them fill out the forms, for example.
exists e1 e2 s1 x1 x2 x3 x4 x5 x6.(-(x5 = x5) & n_side(x5) & a_out(s1) & Manner(e2,s1) & Theme(e2,x6) & Actor(e2,x1) & v_fill(e2) & n_form(x6) & behind(x1,x2) & r_on(e1) & as(e1,x4) & on(x4,x5) & of(x5,x2) & n_counter(x2) & n_counter(x2) & n_man(x4) & card_eq_2(x4) & Actor(e1,x3) & v_look(e1) & (x2 = x3) & n_man(x1))
exists e1 p1 x1 x2 x3.(a_topic(x1) & behind(x1,x2) & Topic(e1,p1) & Actor(e1,x3) & v_wait(e1) & exists e2 x4.(Actor(e2,x4) & v_finish(e2) & n_man(x4) & card_eq_2(x4)) & (x2 = x3) & n_counter(x2) & n_man(x1))