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In addition to such acts of the council as are required by other provisions of this charter to be by ordinance, every act making an appropriation, creating an indebtedness, authorizing borrowing money, levying a tax, establishing any rule or regulation for the violation of which a penalty is imposed, or placing any burden upon or limiting the use of private property, shall be by ordinance. Provided, however, this section shall not apply to the budget adoption. All ordinances shall be confined to one subject except repealing ordinances.