they mean "bonafide job offer". What is happening right now is staffing agencies (mainly in India) mass file H1B applications for all their staff, and then once they get picked in the lottery, they find assignments in the US and file the entire petition after. This heavily disadvantages non-staffing companies who file H1Bs for their staff outside the country or those in the US on F1 visas for actual jobs.
This change is meant to close that loophole. This used to not be a problem, because you had to file the entire petition BEFORE you enter the lottery, but now you just pay some nominal fee and get your name in, leading to a highly profitable situation for staffing companies.
This change is meant to close that loophole. This used to not be a problem, because you had to file the entire petition BEFORE you enter the lottery, but now you just pay some nominal fee and get your name in, leading to a highly profitable situation for staffing companies.