"filling out the bullpen should not be difficult"
Remember that Toronto has been at a severe free agent disadvantage since the onset of COVID and this continued over last offseason because of the rule differences between the countries, certain players not being vaccinated, or perhaps having unvaccinated family members, etc.
They don't have the benefit of a level playing field unfortunately.
I would imagine this type of disadvantage hurts even more when trying to sign smaller contracts like with relievers and bench/depth players...