Seven Years Without an Operating Levy

An operating levy was passed in March 2012 and there was no need for another operating levy until November 2019. However, in the last four years the district used $6.1M from the Nov 2019 levy, COVID Funds of $9.3M, and now DEMANDS $8.2M more. That's $23.6M used / DEMANDED in a four year span. How did the district operate for seven years on the March 2012 levy?