That is the reason for budgets - control over spending. There has not been a non-negative budget in decades. The only reason there is a claim that ONE YEAR of the Clinton administration was non-deficit is that the government liquidated some assets (as I recall, land and strategic petroleum reserves).
For governments, projected budget variations (Incomes - Expenses) should never be negative values (i.e., deficit spending). Borrowing should only occur in the case of a true national emergency (e,g,, a declared war).