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That might refer to the permanent population - in addition to them, the Capital would certainly have a significant number of transient denizens, likely much, much more than permanent ones.
The population is still tiny in comparison to the structure's size, though. Perhaps, given the insane wealth of some Builders, for instance (Bornstellar's family owned an entire planet) powerful families could have enormous portions of the construct for themselves, maybe have giant swathes of mostly empty artificial landscape surrounding massive private villas - you can fill up all that space if you want to get showy. And from what we've seen, the Forerunners sure love showiness.