Numbers, cuts etc etc.

A billion is a big emotional mark. Breaking it down to a per unit, regardless of what is actually given out as revenue, is a fairly traditional means of giving an indication of the per unit revenue (even if unfairly distorting).

Eg: cost of military + war in Iraq (in particular) is often distilled down to the cost born by each man, woman and child in the USA - despite the fact that each man, woman and child does not bear an even cost (nor some would argue an even benefit).