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How much is too much ammo?
Any reasonable amount is not too much. How much is reasonable depends on the what the owner feels is reasonable for his circumstances.
Who gets to say how much is too much?
Each person gets to decide that on his own, since each person decides how much is reasonable for his own circumstances.
Of course, that's not the end of it.
As in any society, the above applies right up until what one or more members of the society decide is reasonable has a sufficiently negative impact or potential negative impact or perceived negative impact on the OTHER members of society that those other members determine that it is in their best interest to devise and enforce a legal definition of "reasonable amount of ammunition". And if they have sufficient power/numbers to make it happen that's precisely what they do.
Then the law says how much is too much.
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