Is a 20l to small for a clarkii or tomatoe pair?

In my personal opinion, no. In my experience if they are hosting an anemone, they tend to stick around it, and not swim freely all that often.

However, don't get an anemone that will fastly outgrow that tank.
 
You wouild proalbly be ok for a while till they out grow tthe system to allow for more swim space try to minimize your lr in the tank.
 
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