In government your budget is based on last years budget. If you don't spend it all then you get cut next year because, presumably, you don't need that much money. Agencies spend a ton of money at the end of the year just to spend the money so that they won't get cut next year. This is also one reason why they have little reason to fire people and lots of reasons to beef up the size of the workforce. Yes, there is always the risk that you will get cut, even though you spend all of your money. But that's a safer bet for an agency president than voluntarily cutting your budget by not spending every penny.