What's always happened to me in Photos is that when Photos forgets a face tag and I re-tag it, the program creates a new person, rather than seeing the person who was formerly tagged.
This happened to my library too, after the upgrade to Catalina.
Catalina seems to have changed (or improved ) the face detection algorithm. So all faces are scanned again, and do to the new algorithm some faces are detected in a slightly different position or not at all. Photos has used the previously assigned names in many cases, but is waiting for a confirmation, if the the faces are not perfectly identical. The previously assigned faces remain hidden, if Photos could not confirm them on its own. If we now assign a face on our own, the person would appear twice in the photo - as the hidden face and the new face we just assigned. Photos is treating them as different people, because Photos 5 does not allow us to name two faces in a photo with the same name. This is probaböy a bugfix to prevent syncing errors for faces across devices, but if Photos assigned a name to the wrong face, we cannot assign the name to the correct face, before we removed the name from the wrong face (which is difficult, if this face is still hidden).
It helps to use "Confirm additional faces" for all People albums, before we start to name faces manually.