Can you share more details regarding how you measure target bitrate? Sample application that reproduces this issue will be more useful for us to review and comment. Also, did you observe same behavior with different contents?
It is not clear if your question really is ‘how to achieve exact target bitrate?’.
If that is what you ask, then target bitrate can be achieved using CBR mode and enable ‘NV_ENC_CONFIG_H264::enableFillerDataInsertion’.