You
assume. The graph itself doesn't justify that assumption. If you want to lie to someone using a graph, this is
exactly the assumption you're hoping they'll make while reading it. Not labeling axis and not starting the graph at 0 are two most basic techniques from the book of Dark Patterns.
Of course this could be an innocent mistake made by Niantic. Could be. But given that PR statements in general tend to be manipulative, I'm not willing to trust that. If they didn't want to reveal their resource capacity, they could have labeled the Y-axis with percentages.