The 2.2 billion number came from the individual budget request process. All the groups sent in their budget request, and someone added them all up and screamed "2.2 bill over budget." Only the final budget didn't give them what they asked for. How does the saying go? Ask for the sun, the moon, and the stars, and settle on the moon.
Let's say you give a $10 allowance to you kid. If he comes up and asks you for a $50 allowance, do you have a $40 deficit?
I see that you're a Cheesehead. Are you well-versed on the state's economics? Such things make most people's eyes glaze over.