That’s how all “estimated damages” work. It’s all just made up by some random person who guesstimated a number then multiplied it by the maximum possible people effected, realistic or not.
https://farmdocdaily.illinois.edu/2024/05/how-will-the-gps-o...
Consider: the outage may have meant that some equipment would be slower, less accurate, or missing some features, causing time delays and other losses that may or may not be equivalent to using the non-GPS equipment. Or it could have rendered the equipment entirely unusable during the outage. It could even have permanently damaged the equipment (e.g. causing it to drive over an embankment or something). There is no apparent attempt to differentiate these outcomes, which could have significant impact on the estimate.