Sounds like "legal language" threshold for whatever reason? The Terafab announcement used the same phrase:

>The initial phase of Terafab is estimated to require approximately $16.8 billion in capital investments from SpaceX and Tesla, with potential future expansion phases bringing total investment much higher. This facility will employ at least 3,000 people, many of whom will be from Grimes and nearby Brazos County — continuing the trend of our other Texas sites where between 60% and 80% of new hires are local residents.

https://www.spacex.com/updates#terafab

That Starbase concept (not that the numbers are realistic by any means) is orders of magnitude more ambitious than what SpaceX does today with 22k employees.