Since 1 and 3 are the real paying options for A-Aron, and option 3 is more like a holy-**** we'd only be able pay $20/25M for cap reasons because our star $50M QB1 is hurt, the Steelers must be low-balling Rodgers.
If they were offering him $40M, I think he'd sign asap because no one will be able to come close to that number as the season nears.
I think it's the Steelers who have been waiting because they know that they are the only "large" payers left.
A-Aron is deciding between a lowball offer from a mediocre team (Steeelers) or an even lower offer from a real contender with an injury later.