I think a reason for this is suppose the next year you run into some difficulties so it requires 14.2M. Now you have to fight to request an extra 0.2M added to your budget that you wouldn't have to worry about if you had 15M.

Totally! And it drives me crazy to get very few questions and mostly positive ones if I underspend by 5-10% but going over by 1-2% is a massive problem.

It’s little surprise what happens under such a system: logical people over-reserve.