Zephadiah explained an answer fairly well in response to your question.
I would add more but I simply don't have time right now to do so.
But a comment however...
It shows the FHFA is the Treasury's puppet.
The document also was not viewed by Judge Lamberth prior to his ruling in November, when it was supposed to be seen by him. Thus, his decision will surely be appealed as well.
Then, you have the Treasury indicating it's interests and effectively confirming many of shareholder suspicions / concerns.
This is truly signaling the end is nigh. Can't wait for the AIG verdict.
Be well,
-zargis