Fresh visas from the 2014 quota. My read of the law is that the USCIS can use 27% Q1 portion of the 40K EB2 quota (note, not EB2I) to satisfy any application that is current. So, technically, if very few EB2ROW applications are current (due to the PERM slowdown, perhaps further affected by the government shut down) all of the visas can be allocated to EB2I if required. However, that would result in an overallocation of visas to Eb2I (effectively quarterly spill over), and I don't think CO is in the mood for QSPs, so I think he has calculated that there isn't much left over demand from EB2I. I don't think more than 3K applicants are left over (not including first time I485 applicants, who's applications are for the most part not likely to be processed by the end of October).