The point of having low-yield nukes is so you can do precision targeting. A 20mt nuke that blows up a whole city cannot be used if there's a danger that fallout might fall on friendly or neutral territory. A 5kt nuke that blows up a roughly 150m radius and causes negligible fallout could be used on a small training camp, or even a warehouse in a lightly-populated suburban area, without causing massive diplomatic problems.