The qualified voters of the City shall have power to propose ordinance, as provided by State statutes, to the Council. If the Council fails to adopt an ordinance so proposed without any change in substance, the qualified voters of the City shall have the right, as provided by State statute, to adopt or reject the proposed ordinance at a City election, provided that such power shall not extend to the budget or any ordinance relating to appropriation of money, levy of taxes or salaries of City officials or employees.