Obama's budget from last year appears to show spending freeze already planned

Per the 2010 proposed budget from last year (section S-4, "Proposed Budget by Category"), the amount of spending Obama wanted in discretionary non-defense spending for 2011, 2012, and 2013 (line "Other appropriated programs") is as follows:

2011 - $672 billion
2012 - $653 billion
2013 - $661 billion

I may be showing my ignorance here, but the way I read this chart, wasn't he already planning to hold this spending steady ("freeze" it) over the next three years?