The balance function only takes columns, as it requires the count property. (However, it should also work for e.g. 3 columns)
You might need to adjust the + 9pt if it breaks the columns too early. It should be slightly under one line height. (If this is too low, it will make the last column longer, if it is to high it will make the first column(s) taller than neccesary.)
In very complicated documents this can lead to the layout not converging, if it has trouble figuring out how many pages the outline needs. This can be fixed by adding an explicit #pagebreak(weak:true) after the outline.