The IDNR covers alot more then just game and fish, would be the sum of other offices like state forestry, mining, museum, etc. So they are allocated a much larger budget.

But that still doesnt solve your questions PM. Your two links didnt work for me probably because they are PDF links or just my computer. What you need to do is seperate the allocated portions out that dont deal with fish and game and that would give you better numbers and allow you to see whether that department is either over or under utilizing their budget are not. Another thing you also may want to take into consideration is how much of that budget was set aside for grants. If it is a set amount and the grant program was either denying alot of grant applications or was not being applied to nearly enough then that would also show some budget being left over. The better question then would be what they do with that is left over?