Of course. But what's meant with "considered" is not about thoughts of those individuals, it's about their actions within the government.

A decision in a government isn't reached by thinking a bit. There are many, many processes to be followed, reports to be written, meetings to be organized. In this context "considering" means, those are already happening, but no consensus has apparently been reached yet.

After all, nobody can look into people's heads. At least not in a way that lets you see thoughts.