Why EB2 India in 2016 got only 3930 green card numbers


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Hi All, Why EB2 India in 2016 got only 3930 green card numbers? 
Source
https://travel.state.gov/content/dam/visas/Statistics/AnnualReports/FY2016AnnualReport/FY16AnnualReport-TableV-Part2.pdf

Can any one explain the reason? Even though the spill over from EB1 has vanished we had a chance of getting unused GC numbers from EB2 ROW(unussed EB2 GC numbers from other countries) because all other EB2 countries the PD is current except India and China. Is it the wrong calculation by USCIS?

Thanks for the help.

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