Re: Doesn't matter . . .
For all anybody at the INS cares, the additional $140 could end up in a box burried behind the embassy. It's a burocracy that requires the additional form and the additional $140. That's it.
It is also possible that this new form and $140 might go to an office at the receiving embassy where a background check of the applicant might be required, and the money would be used to finance the check. Maybe not.
As for the why, I dunno.
Pay the $140,
Dan