The process of exclusion was quarterbacked by the Department of State. Members if tge military and civilian employees of the Department of Defense were being used by Biden to execute or enforce foreign policy. U.S. citizens not appearing in the required pre-packaged condition were to be excluded based on strict orders from the Secretary of State.
My observation vis-a-vis situations like this is similar to securities trading: there are 2 sides to every trade, a buyer and a seller. If the US was giving up $3+billion of assets and personnel (both US and indigenous) who was on the other side of this trade?