20k represents 1%. The target is 5-10%. The messaging is 100-200k federal layoff is coming.
The 8-month buyout offer is significantly better than the one-time offer from Clinton in the 90's [1], even adjusting for inflation, so I'd expect that there's a large group of individuals & families that are just taking the time to evaluate the decision.
[https://www.presidency.ucsb.edu/documents/statement-the-buyo...]
2) They are targeting particular employees more.