The budget is set before the year is known
Occupancy shifts, a new tenant with heavier traffic, a wet winter or a car park resurfacing all land well after the figure has been fixed. The budget holder then spends the year absorbing them, usually by quietly deferring periodic work because it is the only genuinely flexible part of the number. Two or three years of that and the buildings begin to show it in ways no amount of weekly attendance can recover afterwards.
Separating the two categories at quoting stage is what prevents that drift. When periodic items carry their own dates and their own prices, deferring one becomes a visible decision with a recorded consequence rather than an invisible saving nobody notices. The budget holder can still defer it, and often should, but the record then shows what was deferred and when, which is exactly what the next review needs.
