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From the OP's link-
"The agency is expecting to provide federal exchange navigator organization grants for 264 organizations, with each organization employing an average of seven "caseworkers," or staff navigators."
So, for each organization, you've got an average of 7 people at the $20/hr level. I didn't see anything detailing the ratio of mid-level, and executive level. If this were a business endeavor, you'd likely have 40 or more caseworkers under a single mid-level manager and competition would whittle down the profit and therefore the number of fat cats at the top.
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"You can't always get what you want" -Rolling Stones
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