TEPaul,
Budgets are estimates for future needs based on prior needs or experiences.
With changing weather patterns over several seasons, it's almost impossible to accurately predict chemical, fertilizer or agent use.
One also has to inventory equipment, review previous purchases and the expected shelf life of the existing equipment. In some instances clubs have put off purchasing needed equipment and need to catch up, which means the budget takes a hit.
Irrigation systems installed in the late 60's and 70's might be in need of serious repair or replacement. As systems break down, repairs escalate.
I don't know many clubs that undertake radical changes in their maintainance methods, unless:
A new superintendent is brought in and given carte blanche.
A new regime comes in and provides carte blanche
A new regime comes in and cuts, just on principle.
The golf course has undergone a radical change.
The maintainance philosophy is radically changed.
Each club is unique.
Each club usually goes through the process of rotation, meaning that new Chair and Committeemen must be educated.
Then, each committee/Board must go through the discovery process, the due diligence process, and then make prudent decisions that are dictated by the golf course or the leadership. AND, those dictates are not always in harmony.
When a NEW President or Green Chairman, without any immediate, prior, experience on that particular green committee. comes in with both guns blazing and demands reductions, more often then not, he's doing a disservice to the golf course and the people charged with its care.