The qualified voters of the City shall have power to propose ordinances to Council and, if the Council fails to adopt an ordinance so proposed without any change in substance, to adopt or reject it at a regular City election, or at an election called specifically for that purpose, provided that such power shall not extend to the budget or capital program or any ordinance relating to appropriation of money, levy of taxes, imposition of costs, fees or fines, or salaries of City officers or employees.