ATHENS, Ohio — In a combined committees and council meeting lasting over three and a half hours Monday night, Athens City Council approved 2025 appropriations and moved a proposed income tax hike closer to the May 2025 ballot.
A resolution to increase the rate from 1.95% to 2.25% went through its second reading with no discussion. If adopted upon third reading, the issue would go before voters in May 2025. At just over 15%, the proposal is one of the largest income tax increases in the city’s history.
After debating the relationship of the tax proposal to the appropriations ordinance, the body approved $54 million in appropriations for 2025.
Meanwhile, the question of using traditional bricks vs. stamped concrete crosswalks at the intersection of Court and Union streets has been resolved – for now.
In the regular committees meeting, council got an earful from southside residents about a possible housing project near Richland Avenue.
Council passes 2025 appropriations
The $54 million in appropriations for next year includes nearly $20 million for the general fund, which supports city departments including police, fire, the mayor’s office, code enforcement and the municipal court.
Alan Swank, 4th Ward, noted that the general fund’s allocation is about 8% higher than in 2024 — which had jumped by 13% from 2023.
Swank asked about increases in allocations for the annual audit (up by $30,000) and for the auditor’s postage costs (up about $12,000). City Auditor Kathy Hecht didn’t have an immediate answer, but council members noted that such expenses vary every three years.
Swank also questioned an $18,000 increase in the mayor’s travel budget.
Mayor Steve Patterson said that he will be president of the National League of Cities in 2025, which will require “an extensive amount of travel.” The league reimburses his travel costs, he said, but the reimbursement goes to the general fund and not to the mayor’s office. He noted that while he could seek per diem reimbursement for expenses such as meals and mileage, “I do not do that.”
Swank and Solveig Spjeldnes, 1st Ward, voted against adopting the appropriations ordinance. Spjeldnes said there were too many “unknowns” about the budget, including how the city plans to spend the proposed income tax increase.
Taxation and appropriation
Spjeldnes said the income tax hike could have a hard time on the ballot because its proceeds aren’t tied to something specific, like last year’s increase to fund debt payments on the new Stimson fire station headquarters. Swank agreed.
“I am afraid that [the income tax] levy may fail, because it’s not a levy for a tangible item,” he said. “A school is a tangible item. A fire house is a tangible item. A city pool is a tangible item. An income tax is not. And in my experience working with schools all across this state, you don’t want to get into a pattern of failing a levy.”
As at previous council meetings, Spjeldnes said that the city should consider “belt tightening” before placing the tax increase before voters.
“I just question the wisdom of not taking another look at how we can cut something from the budget, rather than raising the taxes to the extent we’re talking about,” she said. “So that’s where I’m really struggling with all this.”
Council member Jeff Risner, 2nd Ward, said that passage of the 2025 appropriations was “being confused” with the proposed city income tax increase, since the budget “has nothing to do with putting the issue on the ballot.”
Risner said he had the votes to end the debate and “call the question.”
“And I think I have the votes to carry it,” Risner said.
“I would vehemently disagree,” Swank replied.
“You can disagree all you want,” Risner answered.
“The mayor just talked about civility,” Swank said, peering at Risner. “Perhaps you can demonstrate some of that.”
“Oh, don’t talk down to me, I’m too old for that,” Risner answered.
Swank said the city budget and proposed income tax increase “are very much related.” Combined with other cost increases the city is imposing — not to mention 2.5% inflation — residents are looking at an 18.75% jump in the cost of living in Athens, he said.
“And, the city right now is out $722,000,” Swank said, referring to the city’s loss to unknown perpetrators who falsely said they were with Pepper Construction, the contractor for the new fire department on Stimson Avenue and the Armory project.
Jessica Thomas, At Large, sided with Risner, saying the 2025 budget and tax proposal are unrelated — because the proposed increase would not go into effect until 2026.
The city needs to pass its budget for operations to continue, she said. Otherwise — as Service-Safety Director Andrew Stone had mentioned — the city could put employees on a two-week furlough at the beginning of the year and fund only essential personnel.
Spjeldnes said that’s not necessary. She quoted Ohio Revised Code 5705.38 (A), which states, “If [a taxing authority] desires to postpone the passage of the annual appropriation measure until an amended certificate is received based on the actual balances, it may pass a temporary appropriation measure for meeting the ordinary expenses of the taxing unit until no later than the first day of April … and the appropriations made in the temporary measure shall be chargeable to the appropriations in the annual appropriation measure for that fiscal year when passed.”
“Columbus does it, Cincinnati does it, other cities do it,” Spjeldnes said. “We could pass a temporary [budget] if we so choose and therefore we’d have a little bit more chance to think it through.”
She proposed passing a basic budget authorizing the city to pay basic expenses and salaries.
“That’s not going to be popular, but it would maybe give us a chance to see some of the things that are still up in the air at this point,” she said.
Crowl took the measure to a vote: It passed 4-2, with Swank and Spjeldnes opposing.
The council also took off the table, and then gave final unanimous passages to:
- An ordinance authorizing 2025 nonunion compensation, covering pay grade and pay range for employees such as department heads and a cost-of-living increase of 75 cents per hour.
- An ordinance adopting a fringe benefits package for non-union personnel, covering items such as overtime, vacations, retirement, and medical insurance.
- An ordinance to obtain the service of the Public Defender’s Office at a cost of $120,000 for the year.
Ordinances with third readings
Council also enacted, through third readings:
- An ordinance continuing the city’s financial support and operation of the Athens County Economic Development Council through 2027 at an annual cost of $60,000.
- An ordinance entering into a one-year contract for $120,000 to be paid to Sunday Creek Horizons, a consulting firm, which includes administration of city grant-funded projects and completion of an Americans with Disabilities Act Transition Plan.
- An ordinance setting 2025 staffing levels for the city.
- An ordinance authorizing a Group Excess Loss Medical Insurance Contract with Sirius America for one year to cover the city’s stop-loss/excess loss medical insurance.
- An ordinance entering into a contract with the Employee Benefit Service Center to serve as the city’s third-party health insurance administrator.
- An ordinance authorizing disposal of two high-mileage vehicles no longer needed for municipal purpose, one 2016 Ford E-450 and a 2018 Ford E-450.
- An ordinance for wasted water charges, which assesses charges to water customers with line breaks based on average water consumption over the past six months and also encourages residential customers to sign up for the Water Loss Protection Program at $36 per year.
- An ordinance authorizing the Service-Safety Director to enter into a contract to lease or otherwise monetize the city’s Solar Renewable Energy Credits.
Ordinances with second readings
A proposal to replace brick crosswalks at the intersection of Court and Union streets with stamped concrete is now on hold.
With winter approaching, “the contractor would need to use glycol blankets to make sure that the surface doesn’t freeze, which makes for a poorer quality concrete surface,” Patterson said. That would drive up the cost significantly — from $168,000 to $225,000 — and require closing the intersection.
Instead, council agreed to amend Ordinance 0-131-24 to authorize using $100,000 from the Street Fund to replace the ramps at all four corners of the intersection. The work will be completed by M&M Construction, the contractor working on the former Follett’s Bookstore, during Ohio University’s winter break.
Before council voted on the amended ordinance, several residents expressed their disappointment that work on the crosswalks will be delayed.
Davey McNelly, chair of the city’s disabilities commission, acknowledged the city’s work on curb cuts in the area. “They’re nowhere near ADA-compliant … they’re still not perfect, but they’re better,” he said.
The brick crosswalks, however, remain a significant barrier to users of wheelchairs and other mobility devices, McNelly said.
“I want people with disabilities to be able to use Uptown Athens, to be able to come to places like city council, to government buildings for voting, and right now people with disabilities are cut out from these establishments,” he said. “It’s just another sad day, to not get this done as soon as possible.”
Stephanie Hunter, a member of the disabilities commission, said that some of the photos used in a recent presentation defending the use of bricks actually showed stamped concrete.
“If they can fool bricks’ number-one fan, I figure that’s pretty good,” she said.
After a third resident spoke about the challenges facing people with disabilities as they navigate Uptown streets, the council voted unanimously to adopt the ordinance.
The council also heard second reading of an ordinance that will provide support from the city’s hotel tax for the Outdoor Recreation Council of Appalachia. The ordinance requires the city to pay ORCA a $24,673 membership fee, representing $1 for each Athens resident. The payment is to be made as long as the city’s general fund reserve balance remains at least 8% in 2024, and at 9% or higher thereafter. The city’s next payment is due in March 2025.
In second readings, the council also heard:
- An ordinance authorizing $220,000 from Water Fund Maintenance for water line replacement on Factory Street, with a new 10-inch line to connect to two other water lines.
- An ordinance authorizing the mayor to enter into an agreement with five code enforcement employees who are members of AFSCME Local 2403 concerning wages and working conditions.
- And ordinances amending membership appointment processes for the board of zoning appeals, shade tree and planning commissions.
Reports given to Council
Before the special meeting, the Athens Pedestrian Accessibility and Bicycle Task Force, the Athens Affordable Housing Commission and the Athens Commission on Disabilities gave reports.
The pedestrian and bicycle annual report stated that Athens retained its status as the fourth most bikeable city in Ohio. Gains in infrastructure this year for bicycles and pedestrians included a new shared-use path on West Union Street and a sidewalk on Dairy Lane. A curb bump-out to enhance pedestrian safety was placed at East State and Watt streets. The task force stated the city has implemented nearly half of its recommendations.
According to the task force, the city has updated about 3.4 miles of pedestrian/bike path infrastructure; those improvements include repaving part of the bike path and replacing 3% of the city’s sidewalks. The city has added more than 2,100 feet of new bike lanes and nearly three-quarter of a mile of new pedestrian infrastructure.
Reporting for the Affordable Housing Commission, Spjeldnes said The Ridges development is progressing. The project involves 700 potential housing units, including town houses, single family homes, condominiums, “the whole thing,” she said. Existing trails will be left intact, she said, and current buildings will be renovated.
OU is processing The Ridges plan through the Ohio Department of Administrative Services and Controlling Board, Spjeldnes said. Project land is anticipated to be transferred to The Ridges New Community Authority this spring. The first request for proposals will be for senior housing, Spjeldnes said.
Spjeldnes also mentioned Project Co-Create, an initiative led by the Athens County Foundation to address emergency housing for people “who are in dire need of a place to stay overnight.” One piece of the project has already happened, with HAPCAP receiving a $2 million grant to purchase and rehabilitate the Sunset Motel for emergency housing use.
Micah McCarey, At Large, and members of the commission on disabilities reported on possible legislation proposals, including offering matching funds to give business owners an incentive to become ADA compliant.
Patterson said the proposal should still put the burden of ADA compliance on businesses, which are required to comply. He suggested offering a 20% match rather than a 50-50 split.
Another possible ordinance, part of the city’s ADA Transition Plan, would set aside up to 20% of city funds for ADA compliance on streets and sidewalks. The city spends about $500,000 annually on street repaving, Patterson said.
Athens City Council’s next regular meeting will be at 7 p.m. on Monday, Dec. 16, in Athens City Hall, Council Chambers, third floor, 8 E. Washington St. Meetings are also available online. Regular sessions are on the first and third Mondays of the month; committee meetings are on the second and fourth Mondays.
This article was updated at 9:27 a.m. Dec. 19 to add comments from councilwoman Solveig Spjeldnes on whether the city is required to pass an appropriations ordinance by Dec. 31.
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