$.02 if you’re wanting to carry panniers on a road bike with shortish <17” chainstays consider front low riders with medium to small panniers and rear rack for bulky light loads. It’s a poor fit putting lots of weight behind the rear wheel of a bike not designed for weight in that location even though most pictures and people put stuff there. Rear racks on road bike, cross bike, gravel bike, modern mtn bike, light touring bike, etc. are common but not ideal for panniers simply because the pannier has to be moved far back to clear heels. Absolutely nothing wrong with a cheap rear rack I’ve used a bunch but if your goal is carrying panniers where you have to elevate or extend the panniers far back or high then you are choosing bad handling more than meeting a budget.
If your need is a rear rack then get a good cheap rear rack that attaches to seat stays and attach it so the deck clears the tire or has room for fenders. If you need a rack for panniers and the rear position compromises handling get the cheapest front rack, low riders or small platform rack that enables the panniers to be mounted as far back as practical on the forks.