Ohio Issue 2, Local Public Infrastructure Bond Amendment (May 2025)
| Ohio Issue 2 | |
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| Topic Bond issues |
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| Status On the ballot |
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| Type Legislatively referred constitutional amendment |
Origin |
Ohio Issue 2, the Local Public Infrastructure Bond Amendment, is on the ballot in Ohio as a legislatively referred constitutional amendment on May 6, 2025.
A “yes” vote supports allowing the state to issue up to $2.5 billion in general obligation bonds, limited to $250 million per year over 10 years, to assist local governments in funding public infrastructure improvement projects. |
A “no” vote opposes allowing the state to issue up to $2.5 billion in general obligation bonds, limited to $250 million per year over 10 years, to assist local governments in funding public infrastructure improvement projects. |
Overview
What would Ohio Issue 2 do?
- See also: Text of measure
Issue 2 is a constitutional amendment to allow the state government to issue $2.5 billion in general obligation bonds over ten years—no more than $250 million per year—to assist local governments in paying for public infrastructure projects. The funding would be provided through the State Capital Improvement Program (SCIP).[1]
What is SCIP? — SCIP provides financial support to local governments for projects like roads, bridges, sewers, stormwater systems, and waste facilities.[1] According to the Ohio Public Works Commission, SCIP has funded 4,543 projects across the state's 88 counties between fiscal years 2017 and 2025.[2]
What is a general obligation bond? — In Ohio, a general obligation bond, also called a GO bond, is a type of loan the state can use to fund public projects. GO bonds are backed by the government’s ability to repay the loan using tax revenues. This doesn’t mean taxes will increase, but the government’s ability to raise taxes if needed is what gives bondholders confidence—rather than relying on physical collateral.[3] Sen. Brian Chavez (R-30), who supports Issue 2, said, "The program does not create any increase in taxes because the funds to retire the bonds are built into the state budget planning."[4] State Rep. Ron Ferguson (R-96), who opposes Issue 2, said, "We’re in this time where we should be making tax dollars stretch as far as possible to provide as many good, solid services for people as possible and I don’t think this is the most efficient way to do that."[5]
Who can receive SCIP funding? — SCIP funding is available to local government entities, defined as counties, cities, villages, townships, sanitary districts, and regional water and sewer districts.[6]
What types of projects can SCIP funding be used for? — SCIP funding can be used for capital improvement projects, specifically for building, improving, or planning roads and bridges, wastewater treatment systems, water supply systems, solid waste facilities, flood control systems, and stormwater or sanitary sewer systems. It also covers the land, buildings, and equipment needed to support those projects.[6]
What types of financial assistance does SCIP provide to local governments? — SCIP provides funding to local governments through grants, loans, and loan assistance:[7]
• Grants can cover up to 90% of the cost for repair or replacement projects, and up to 50% for new construction or expansion.
• Loans can cover up to 100% of project costs, have 0% interest, and can have terms of 1 to 30 years, not exceeding the project’s useful life.
• There is no minimum or maximum loan amount, and recipients may repay the loan early without a penalty.
• After the project is completed, the commission provides a final loan schedule. Loan payments are due twice a year—in January and July—until the loan is repaid.
Have Ohio voters decided on similar measures before?
- See also: Background
Since 1987, voters have approved four bond measures to provide funding for SCIP. In 1987, voters approved a constitutional amendment, titled Issue 2, that allowed the state to issue $1.2 billion in general obligation bonds over 10 years, limited to $120 million per year, to assist local governments in funding public infrastructure projects. The state legislature created the State Capital Improvement Program (SCIP) to administer the general obligation bonds. Since Issue 2 allowed general obligation bonds to be issued over 10 years, no additional bonds would be available after that time.
In 1995, the Ohio State Legislature approved a resolution for a constitutional amendment, also titled Issue 2, asking voters to approve a new $1.2 billion general obligation bond for SCIP, as well as another bond for state highways. Voters approved Issue 2 of 1995. Voters approved additional general obligation bonds to renew funding for SCIP in 2005 and 2014. In 2005, voters approved Issue 1, which issued $1.35 billion for SCIP, along with other bonds. In 2014, voters approved another constitutional amendment titled Issue 1, which issued $1.875 billion for SCIP over 10 years.
Ohio voters decided a total of 29 bond measures since 1921. Twenty-seven of these measures were referred to the ballot by the legislature, and two were placed on the ballot by a successful citizen initiative. Out of these measures, 21 (72.41%) were approved and eight (27.59%) were defeated.
How did legislators vote on Issue 2?
- See also: Path to the ballot
Rep. Scott Oelslager (R-48) and Rep. Dan Troy (D-23) introduced the amendment as House Joint Resolution 8 (HJR 8) on November 12, 2024. In Ohio, placing a constitutional amendment on the ballot requires a 60% vote in both legislative chambers.[8]
- On December 4, 2024, the Ohio House of Representatives voted 87-4 to pass SJR 8.
- On December 18, 2024, the Ohio Senate voted 30-1 to pass SJR 8.
Issue 2 received unanimous support from legislative Democrats, excluding absent members. Among Republicans, 94% voted for the constitutional amendment. Four House Republicans and one Senate Republican voted against referring the amendment to the ballot.[8]
Text of measure
Ballot title
The official ballot title is as follows:[9]
| “ |
Proposed Constitutional Amendment TO FUND PUBLIC INFRASTRUCTURE CAPITAL IMPROVEMENTS BY PERMITTING THE ISSUANCE OF GENERAL OBLIGATION BONDS Proposed by Joint Resolution of the General Assembly To enact Section 2t of Article VIII of the Constitution of the State of Ohio A majority yes vote is required for the adoption of Section 2t. This proposed amendment would: 1. Authorize the state to issue bonds or other obligations to finance or assist in financing public infrastructure capital improvements for local governments and other governmental entities. Capital improvement projects would be limited to roads and bridges, waste water treatment systems, water supply systems, solid waste disposal facilities, storm water and sanitary collection, storage, and treatment facilities. 2. Determine that such capital improvements are necessary to preserve and expand the public infrastructure, ensure public health, safety and welfare, create and preserve jobs, enhance employment opportunities, and improve the economic welfare of the people of Ohio. 3. Limit the total principal amount of the state general obligations issued under the amendment to no more than $2.5 billion over a ten-year period. Any principal amount that could have been issued in any prior fiscal year, but was not issued, may subsequently be issued. 4. Require that obligations issued under this amendment mature no later than thirty (30) years after their date of issuance, and that any obligation issued to retire or refund other obligations mature no later than the permitted maturity date for the obligations being retired or refunded. 5. Authorize the General Assembly to pass laws implementing this amendment, including laws establishing procedures for incurring and issuing obligations, and laws providing for the use of Ohio products, materials, services and labor to the extent possible. If approved, the amendment shall take effect immediately. A "YES" vote means approval of the amendment. A "NO" vote means disapproval of the amendment.[10] |
” |
Constitutional changes
- See also: Article VIII, Ohio Constitution
The ballot measure would add a Section 2t to Article VIII of the Ohio Constitution. The following underlined text would be added:[1]
Note: Use your mouse to scroll over the text below to see the full text.
Section 2t. (A) In addition to the authorizations otherwise contained in Article VIII of the Ohio Constitution, the General Assembly may provide by law, in accordance with and subject to the limitations of this section, for the issuance of bonds and other obligations of the state for the purpose of financing or assisting in the financing of the cost of public infrastructure capital improvements of municipal corporations, counties, townships, and other governmental entities as designated by law. As used in this section, public infrastructure capital improvements shall be limited to roads and bridges, waste water treatment systems, water supply systems, solid waste disposal facilities, and storm water and sanitary collection, storage, and treatment facilities, including real property, interests in real property, facilities, and equipment related to or incidental thereto, and shall include, without limitation, the cost of acquisition, construction, reconstruction, expansion, improvement, planning, and equipping.
It is hereby determined that such public infrastructure capital improvements are necessary to preserve and expand the public capital infrastructure of such municipal corporations, counties, townships, and other governmental entities, ensure the public health, safety, and welfare, create and preserve jobs, enhance employment opportunities, and improve the economic welfare of the people of this state.
(B) Not more than two billion five hundred million dollars principal amount of state general obligations may be issued under this section for public infrastructure capital improvements. Not more than two hundred fifty million dollars principal amount of those obligations may be issued in each of the ten fiscal years of issuance, plus in each case the principal amount of those obligations that in any prior fiscal year could have been but were not issued within those fiscal year limits. No obligations may be issued pursuant to this section until all of the state infrastructure obligations authorized under Section 2s of Article VIII, Ohio Constitution have been issued.
(C) Each issue of obligations issued under this section shall mature in not more than thirty years from the date of issuance, or, if issued to retire or refund other obligations, within that number of years from the date the debt being retired or refunded was originally issued. If state general obligations are issued as notes in anticipation of the issuance of bonds, provision shall be made by law for the establishment and maintenance, during the period in which the notes are outstanding, of a special fund or funds into which shall be paid, from the sources authorized for the payment of such bonds, the amount that would have been sufficient, if bonds maturing during the permitted period of years had been issued without such prior issuance of notes, to pay the principal that would have been payable on such bonds during such period. Such fund or funds shall be used solely for the payment of principal of such notes or bonds in anticipation of which such notes have been issued. Obligations issued under this section to retire or refund obligations previously issued under this section or Section 2k, 2m, 2p, or 2s of Article VIII, Ohio Constitution shall not be counted against the fiscal year or total issuance limitations provided in this section or Section 2k, 2m, 2p, or 2s as applicable.
(D) The obligations issued under this section are general obligations of the state. The full faith and credit, revenue, and taxing power of the state shall be pledged to the payment of the principal of and premium and interest and other accreted amounts on outstanding obligations as they become due (hereinafter called debt service), and bond retirement fund provisions shall be made for payment of that debt service. Provision shall be made by law for the sufficiency and appropriation, for purposes of paying debt service, of excises, taxes, and revenues so pledged or committed to debt service, and for covenants to continue the levy, collection, and application of sufficient excises, taxes, and revenues to the extent needed for that purpose. Notwithstanding Section 22 of Article II, Ohio Constitution, no further act of appropriation shall be necessary for that purpose. The obligations and the provision for the payment of debt service, and repayment by governmental entities of any loans made under this section, are not subject to Sections 5, 6, and 11 of Article XII, Ohio Constitution. Moneys referred to in Section 5a of Article XII, Ohio Constitution may not be pledged to the payment of that debt service.
(E) The state may participate in any public infrastructure capital improvement under this section with municipal corporations, counties, townships, or other governmental entities as designated by law, or any one or more of them. Such participation may be by grants, loans, or contributions to them for any such capital improvements. The entire proceeds of the infrastructure obligations shall be used for public infrastructure capital improvements of municipal corporations, counties, townships, and other governmental entities, except to the extent that the General Assembly provides by law that the state may reasonably be compensated from such moneys for planning, financial management, or administrative services performed in relation to the issuance of infrastructure obligations.
(F) Obligations issued under authority of this section, the transfer thereof, and the interest, interest equivalent, and other income and accreted amounts therefrom, including any profit made on the sale, exchange, or other disposition thereof, shall at all times be free from taxation within the state.
(G) This section shall otherwise be implemented in the manner and to the extent provided by law by the General Assembly, including provision for the procedure for incurring and issuing obligations, separately or in combination with other obligations, and refunding, retiring, and evidencing obligations, and provision for the use to the extent practicable of Ohio products, materials, services, and labor in the making of any project financed, in whole or in part, under this section.
(H) The powers and authority granted or confirmed by and under, and the determinations in, this section are independent of, in addition to, and not in derogation of or a limitation on, powers, authority, determinations, or confirmations under laws or under other provisions of the Ohio Constitution and do not impair any previously adopted provisions of the Ohio Constitution or any law previously enacted by the General Assembly or by a local public agency.[10]
Support
The Strong Ohio Communities Coalition organized the campaign Yes 2 Build Ohio, which supports Issue 2.[11]
Supporters
Officials
- State Sen. Nickie Antonio (D)
- State Sen. Brian Chavez (R)
- State Sen. Hearcel Craig (D)
- State Rep. Scott Oelslager (R)
- State Rep. Kevin Ritter (R)
- State Rep. Dan Troy (D)
Unions
- Affiliated Construction Trades of Ohio
- Laborers' District Council of Ohio
- Ohio Association of Professional Firefighters
- Ohio State Building and Construction Trades Council
Organizations
- American Council of Engineering Companies of Ohio
- Associated General Contractors of Ohio
- Association of Ohio Drinking Water Agencies
- Association of Ohio Metropolitan Wastewater Agencies
- Buckeye State Sheriffs' Association
- County Commissioners Association of Ohio
- County Engineers Association of Ohio
- Greater Ohio Policy Center
- Mayors Association of Ohio
- Municipal Engineers Association of Ohio
- Ohio Aggregates & Industrial Minerals Association
- Ohio AgriBusiness Association
- Ohio Association of Public Safety Directors
- Ohio Association of Regional Councils
- Ohio Business Roundtable
- Ohio Cattlemen’s Association
- Ohio Chamber of Commerce
- Ohio Contractors Association
- Ohio Corn & Wheat Growers Association
- Ohio Council of County Officials
- Ohio Council of Retail Merchants
- Ohio Economic Development Association
- Ohio Environmental Council Action Fund
- Ohio Farm Bureau
- Ohio Home Builders Association
- Ohio Hotel & Lodging Association
- Ohio Manufacturers' Association
- Ohio Mayors Alliance
- Ohio Municipal League
- Ohio Oil & Gas Association
- Ohio Pork Council
- Ohio Public Transit Association
- Ohio Restaurant and Hospitality Alliance
- Ohio Rural Development Alliance
- Ohio Soybean Association
- Ohio State Grange
- Ohio Township Association
- Ohio Water Partnership
Arguments
Official arguments
Opposition
Opponents
Officials
- State Sen. Niraj Antani (R)
- State Rep. Ron Ferguson (R)
Political Parties
Organizations
Arguments
Official arguments
Campaign finance
Strong Ohio Communities Coalition (Yes 2 Build Ohio) is the campaign registered in support of the amendment.[12]
Ballotpedia did not identify ballot measure committees registered to oppose the ballot measure.[12]
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| Cash Contributions | In-Kind Contributions | Total Contributions | Cash Expenditures | Total Expenditures | |
|---|---|---|---|---|---|
| Support | $697,500.00 | $0.00 | $697,500.00 | $349,284.42 | $349,284.42 |
| Oppose | $0.00 | $0.00 | $0.00 | $0.00 | $0.00 |
| Total | $697,500.00 | $0.00 | $697,500.00 | $349,284.42 | $349,284.42 |
Support
The following table includes contribution and expenditure totals for the committees in support of the measure.[12]
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| Committees in support of Issue 2 | |||||
|---|---|---|---|---|---|
| Committee | Cash Contributions | In-Kind Contributions | Total Contributions | Cash Expenditures | Total Expenditures |
| Strong Ohio Communities Coalition | $697,500.00 | $0.00 | $697,500.00 | $349,284.42 | $349,284.42 |
| Total | $697,500.00 | $0.00 | $697,500.00 | $349,284.42 | $349,284.42 |
Donors
The following were the top donors to the committee.[12]
| Donor | Cash Contributions | In-Kind Contributions | Total Contributions |
|---|---|---|---|
| Ohio Construction Information Association | $150,000.00 | $0.00 | $150,000.00 |
| IUOE Local 18 | $50,000.00 | $0.00 | $50,000.00 |
| Ohio Laborer's District Council PCE | $50,000.00 | $0.00 | $50,000.00 |
| Flexible Pavements of Ohio | $30,000.00 | $0.00 | $30,000.00 |
| George J Igel & Co Inc. | $25,000.00 | $0.00 | $25,000.00 |
| Ohioans for a Healthy Economy Action Fund | $25,000.00 | $0.00 | $25,000.00 |
Media editorials
Support
Opposition
You can share campaign information or arguments, along with source links for this information, at [email protected]
Background
Ohio Public Works Commission
The Ohio Public Works Commission (OPWC) is a 12-member commission that administers the State Capital Improvement Program, Local Transportation Improvement Program, and Clean Ohio Conservation Program. The OPWC includes seven appointed voting members who can vote on the commission's decisions:[13][14]
- the House Speaker and Senate President each appoint two members of the OPWC;
- the House Minority Leader and Senate Minority Leader each appoint one; and
- the House Speaker and Senate President alternate in appointing one private-sector member with experience in public finance.
The other five members cannot vote. These members are the state Director of Natural Resources, Director of Transportation, Director of Development, Director of Environmental Protection, and Chairperson of the Ohio Water Development Authority.[13]
Bonds for State Capital Improvement Program (SCIP)
In 1987, voters approved a constitutional amendment, titled Issue 2, that allowed the state to issue $1.2 billion in general obligation bonds over 10 years, limited to $120 million per year, to assist local governments in funding public infrastructure projects. The state legislature created the State Capital Improvement Program (SCIP) within the Ohio Public Works Commission to administer general obligation bonds as grants, loans, loan assistance, or local debt support to local governments.[15]
Since Issue 2 allowed general obligation bonds to be issued over 10 years, no additional bonds would be available after that time. In 1995, the Ohio State Legislature approved a resolution for a constitutional amendment, also titled Issue 2, asking voters to approve a new $1.2 billion general obligation bond for SCIP, as well as another bond for state highways. Voters approved Issue 2 of 1995.
Voters approved additional general obligation bonds to renew funding for SCIP in 2005 and 2014. In 2005, voters approved Issue 1, which issued $1.35 billion for SCIP, along with other bonds. In 2014, voters approved another constitutional amendment titled Issue 1, which issued $1.875 billion for SCIP over 10 years.
| Year | Measure | Amount for SCIP | Yes | No | Margin | Outcome |
|---|---|---|---|---|---|---|
| 1987 | Issue 2 | $1.2 billion | 70.84% | 29.16% | +41.68% |  |
| 1995 | Issue 2 | $1.2 billion | 61.94% | 38.06% | +23.88% | |
| 2005 | Issue 1 | $1.35 billion | 54.12% | 45.88% | +8.24% | |
| 2014 | Issue 1 | $1.875 billion | 65.11% | 34.89% | +30.22% | |
Ohio Public Works Commission (OPWC) SCIP funding
The below graph shows funding information for the previous nine years based on jurisdiction (out of $2.3 billion):
- Cities: $1.03 billion (44.8%)
- Counties: $583.8 million (25.2%)
- Townships: $194.3 million (8.5%)
- Villages: $477.4 million (20.6%)
- Water & Sewer Districts: $21.4 million (0.9%)
The below graph shows funding information for the previous nine years based on infrastructure type (out of $2.3 billion)::
- Road: $1.3 billion (56.7%)
- Stormwater: $99.6 million (4.3%)
- Wastewater: $320.7 million (13.9%)
- Water Supply: $424.4 million (18.3%)
- Bridge/Culvert: 156.3 million (6.8%)
History of state bond measures in Ohio
Voters in Ohio decided on 29 statewide bond measures from 2010 to 2024. Voters approved 21 measures (72.41%) and rejected eight (27.59%). The table below lists the ballot measures:
Ohio Historical Ballot Measures Factbook
Path to the ballot
Amending the Ohio Constitution
- See also: Amending the Ohio Constitution
In Ohio, a 60 percent vote in each legislative chamber during one legislative session is required to refer a legislatively referred constitutional amendment to the ballot. That amounts to a minimum of 60 votes in the Ohio House of Representatives and 20 votes in the Ohio State Senate, assuming no vacancies. Amendments do not require the governor's signature to be referred to the ballot.
House Joint Resolution 8
Reps. Scott Oelslager (R-48) and Daniel Troy (D-23) introduced the constitutional amendment into the Ohio State Legislature as House Joint Resolution 8 (HJR 8) on November 12, 2024. The constitutional amendment moved through the legislature between November 12 and December 18, 2024.[8]
- November 12: Reps. Oelslager and Troy introduced HJR 8.
- December 4: The Ohio House of Representatives voted 87-4 to pass the amendment. The four legislators who voted against the amendment were Republicans.
- December 18: The Ohio State Senate voted 30-1 to pass the amendment. The one legislator who voted against the amendment was Republican Sen. Niraj Antani (R-6).
- December 18: As the Senate and House approved HJR 8, the amendment was enrolled with the office of Secretary of State Frank LaRose (R) for inclusion on a special election ballot for May 6, 2025.
| Votes Required to Pass: 60 | |||
| Yes | No | NV | |
|---|---|---|---|
| Total | 87 | 4 | 8 |
| Total % | 87.9% | 4.0% | 8.1% |
| Democratic (D) | 29 | 0 | 3 |
| Republican (R) | 58 | 4 | 5 |
| Votes Required to Pass: 20 | |||
| Yes | No | NV | |
|---|---|---|---|
| Total | 30 | 1 | 1 |
| Total % | 93.8% | 3.1% | 3.1% |
| Democratic (D) | 6 | 0 | 1 |
| Republican (R) | 24 | 1 | 0 |
See also
View other measures certified for the 2025 ballot across the U.S. and in Ohio.
Explore Ohio's ballot measure history, including constitutional amendments.
Understand how measures are placed on the ballot and the rules that apply.
How to cast a vote
- See also: Voting in Ohio
See below to learn more about current voter registration rules, identification requirements, and poll times in Ohio.
External links
Footnotes
- ↑ 1.0 1.1 1.2 Ohio State Legislature, "HJR 8," accessed January 10, 2024 Cite error: Invalid
<ref>tag; name "text" defined multiple times with different content - ↑ Ohio Public Works Commission, "OPWC Dollars at Work in Ohio," accessed April 15, 2025
- ↑ Investopedia, "General Obligation (GO) Bond: Definition, Types, Vs. Revenue Bond," August 17, 2020
- ↑ The Columbus Dispatch, "Ohio voters could decide a statewide ballot issue in May on money for roads, bridges," November 12, 2024
- ↑ NBC 4, "What yes or no vote really means for Ohio Issue 2 in May election," April 13, 2025
- ↑ 6.0 6.1 Ohio Revised Code, "Section 151.08: State capital improvements bond service fund," accessed April 15, 2025
- ↑ Ohio Public Works Commission, "SCIP/LTIP," accessed April 15, 2024
- ↑ 8.0 8.1 8.2 Ohio General Assembly, "House Joint Resolution 8: Status," accessed December 19, 2024
- ↑ Ohio Board of Elections, "Text of Measure," accessed February 24, 2025
- ↑ 10.0 10.1 10.2 Note: This text is quoted verbatim from the original source. Any inconsistencies are attributable to the original source. Cite error: Invalid
<ref>tag; name "quotedisclaimer" defined multiple times with different content Cite error: Invalid<ref>tag; name "quotedisclaimer" defined multiple times with different content - ↑ Strong Ohio Communities Coalition, "Homepage," accessed April 14, 2025
- ↑ 12.0 12.1 12.2 12.3 Ohio Secretary of State, "Campaign Finance," accessed January 9, 2025
- ↑ 13.0 13.1 Ohio Legislative Service, "Public Works Commission, Ohio," accessed April 15, 2025
- ↑ Ohio Public Works Commission, "Our Commissioners," accessed April 15, 2025
- ↑ Ohio Public Works Commission, "State Capital Improvement Program," accessed December 19, 2024
- ↑ Ohio Secretary of State, “Election Day Voting,” accessed April 12, 2023
- ↑ Ohio Secretary of State, “Voter Eligibility & Residency Requirements,” accessed April 12, 2023
- ↑ Ohio Secretary of State, “Register to Vote and Update Your Registration,” accessed April 6, 2023
- ↑ Democracy Docket, “Ohio Governor Signs Strict Photo ID Bill Into Law,” January 6, 2023
- ↑ 20.0 20.1 20.2 NCSL, "State Profiles: Elections," accessed August 7, 2024
- ↑ Ohio Secretary of State, "Voter Registration and Information Update Form," accessed November 2, 2024
- ↑ Under federal law, the national mail voter registration application (a version of which is in use in all states with voter registration systems) requires applicants to indicate that they are U.S. citizens in order to complete an application to vote in state or federal elections, but does not require voters to provide documentary proof of citizenship. According to the U.S. Department of Justice, the application "may require only the minimum amount of information necessary to prevent duplicate voter registrations and permit State officials both to determine the eligibility of the applicant to vote and to administer the voting process."
- ↑ Ohio Secretary of State, "Identification requirements," accessed Aprl 6, 2023
