Strategic Budgeting in Uncertain Times

Franklin County’s approach to fiscal planning

BY KENNETH WILSON, ICMA-CM

Periods of fiscal uncertainty test the budgeting practices of any government. For Franklin County, Ohio, our response has been to lean into strategic planning, anchoring annual budget decisions to clearly defined priorities and a long-term financial forecast that keeps both leadership and agency partners aligned. This is especially important when the fiscal picture is unclear.

Franklin County is one of Ohio’s most dynamic jurisdictions. Home to Columbus, the state capital and county seat, we serve a diverse population across a broad range of socioeconomic backgrounds, races, ethnicities, and educational levels. Our economy draws from trade, finance, education, healthcare, and government contributing to steady growth while also requiring an adaptive approach to public finance.

Franklin County’s budget structure reflects its layered governance. A three-member board of commissioners functions as the county’s taxing, budgeting, and purchasing authority, setting overall allocations while independent agencies determine how their funds are spent. Eight additional elected officials manage their respective offices as required by Ohio law, overseeing areas ranging from building and zoning to human services, employment, and economic development.

An appointed county administrator handles day-to-day operations and leads budget development in partnership with the office of management and budget (OMB)—a structure designed for both accountability and responsiveness as the county continues to grow.

The 2026 budget marked a notable inflection point. For the first time in over a decade, Franklin County faced the need for budgetary reductions, driven by the expiration of pandemic-era federal support, concerns about an economic slowdown, and uncertainty surrounding future state and federal policy.

Despite these challenges, county administration developed a budget that aligns with the commissioners’ strategic priorities, defined by six core principles. These principles help clarify why the county offers certain programs, their value to residents, and their benefits to the community. We have also worked to streamline budget documents to make them clearer and highlight key services.

In 2024, county leadership fine-tuned the strategic goals associated with each core principle. Each principle now has a vision of what we aim to achieve, specific objectives for investment, and core values that guide our work. As Franklin County continues to grow, this strategic direction ensures we remain committed to serving every resident every day.

A central tenet of the county’s budget philosophy is efficient, responsive, and fiscally sustainable governance. Franklin County has maintained triple-A bond ratings from both Moody’s and Standard & Poor’s—a reflection of the disciplined financial management that underpins its long-term strategy.

Stewardship also means forward-looking investment: transitioning to electric vehicles to reduce operating costs, developing a workforce that mirrors the community it serves, and supporting a sustainable network of local service providers. These deliberate strategies protect the county’s financial position over time.

Franklin County has made public transparency a structural commitment. Budget briefs for all 35 county agencies are posted on the county’s website, offering residents accessible detail on revenues, expenditures, staffing, and program highlights. Throughout the year, OMB analysts monitor agency adherence to appropriation levels and performance targets, shifting the budget from a static document into an active management tool.

The annual update of the long-term financial forecast serves a similar function, identifying emerging revenue and expenditure trends early enough to inform decisions before they become constraints.

The budget process in Franklin County kicks off each spring. After a first-quarter review, the OMB updates the long-term financial forecast, guiding agencies when the budget instructions are released. Each of the 35 agencies outlines their strategic initiatives and performance measures in their strategic business plans, working with the OMB to align their programs with the board of commissioners’ core principles.

During the summer, agencies submit their budget requests, and OMB staff meet with them to review past expenditures and determine the resources needed for the upcoming year. In the fall, OMB prepares budget briefs and presents them to county administration, which formulates recommendations for each program to ensure effective resource use. This culminates in a budget proposal that the board of commissioners reviews. After a series of hearings, the board makes revisions and votes to adopt the budget in December.

The process does not guarantee that every request will be funded. What it does provide is a shared framework grounded in strategic priorities and long-term fiscal guidelines that brings county administration, elected officials, and independent boards into alignment around a common set of goals. In an uncertain fiscal environment, that clarity has proven to be a practical and durable asset.

When Jails Become Mental Health Facilities

How Montgomery County, Ohio, is rethinking care and public safety

BY MICHAEL B. COLBERT

In the United States, the intersection of mental health, substance use, and the criminal justice system has become a growing public health challenge. According to the Substance Abuse and Mental Health Services Administration, nearly 44% of people held in local jails and 37% of those in state or federal prisons report having a mental health disorder, rates far higher than those seen in the general population. As a result, jails across the country have increasingly become de facto mental health facilities, often without the infrastructure or clinical resources needed to support recovery.

Montgomery County, Ohio, is no stranger to this reality. As behavioral health needs have risen locally, especially since the COVID-19 pandemic, county leaders have been working to address how best to respond in a system historically designed for detention, not treatment. The Montgomery County Board of County Commissioners (BCC) is taking a significant step forward, constructing a nearly $20 million behavioral health unit within the county jail.

The project represents more than a physical renovation. It reflects a shift in philosophy: recognizing that addressing behavioral health needs is essential to public safety, staff well-being, and long-term community stability.

Responding to a Growing Need

Behavioral health challenges in Montgomery County have been growing for years, and the pandemic only added to that pressure. Inside the jail, that reality is felt daily. Since 2019, behavioral health needs in the Dayton region have increased by 26%, and nearly a quarter of the Dayton region’s adult population is affected by mental illness, according to the Greater Dayton Area Hospital Association.

Too often, individuals experiencing mental health or substance use crises enter the justice system because there are few immediate alternatives. The new behavioral health unit strengthens existing services within the jail. While detox services, suicide-prevention measures, medical care, and intake procedures are currently provided, consolidating these resources into a dedicated space will allow for more effective management and coordination. The improved location and design will enhance oversight, efficiency, and continuity of care.

“We know these improvements will increase the safety of inmates and staff, and that’s why we are working to get this right,” said Commission President Carolyn Rice. “This project is the result of years of planning, community input, and expert guidance. It represents a thoughtful, balanced solution to a complex challenge.”

Years of Planning and Collaboration

The groundwork for this project was laid almost a decade ago. In 2017, the BCC established an independent justice committee, bringing together voices from civil rights organizations, law enforcement, the judiciary, health care, academia, and faith communities. The group examined jail operations and conditions, sharing findings with the broader community.

“This project is about people, our neighbors, our families, and our community,” said Commissioner Mary A. McDonald. “By creating a safer and more supportive environment in the jail, we are not only protecting staff and inmates but giving residents a better chance to get the support they need.”

A 2019 report by a jail consultant highlighted challenges related to capacity, operations, and facility conditions. A full jail replacement had been recommended, with an estimated cost of over $170 million. Like many agencies at the time, county leaders were facing pandemic-related budget pressures and chose to focus on practical, targeted solutions. That shift led to the idea of creating a dedicated behavioral health task force.

In 2023, the task force got to work. Made up of experts in health care, law enforcement, the courts, and community leadership, they came to a clear conclusion: the jail needed a dedicated behavioral health unit to better support a growing inmate population.

“Montgomery County has been addressing behavioral health and addiction challenges for years, including the impacts of the opioid epidemic,” said Commissioner Judy Dodge. “This behavioral health unit is another tool we can use to support that effort.”

Investing Beyond the Jail Walls

Approved in September 2023, the behavioral health unit project will convert 226 general population beds into a behavioral health and medical wing, expanding medical capacity from 12 beds to 112. Montgomery County has been able to fund this project without tapping critical general funds or requesting additional levies. A combination of American Rescue Plan Act dollars and opioid settlement funds is making this project possible. Construction began in October 2025 and is expected to be completed by mid-2027.

But county leaders emphasize that the behavioral health unit is only one piece of a broader strategy. Montgomery County is also investing $1.3 million in opioid settlement funds into the behavioral health safety net portal, a tool designed to improve care coordination across health systems, the justice system, and behavioral health providers.

Behavioral health care doesn’t stop at the jail door. This approach helps ensure people receive support when they enter the system and continue to receive care as they transition back into the community.

Looking Ahead

Since 2019, the BCC has invested more than $6.6 million in jail improvements, including HVAC upgrades, security enhancements, and critical infrastructure repairs. The new behavioral health unit takes that approach a step further, showing that supporting behavioral health is a responsibility shared by the whole community.

“The challenges we see in our community are often reflected inside our jail,” said Sheriff Rob Streck. “This unit will allow us to address those needs more effectively and offer a path toward lasting recovery.”

Across the United States, communities are rethinking how jails handle behavioral health. Montgomery County is taking a thoughtful approach built on collaboration, data, and above all, compassion. At its core is a simple but powerful idea: public safety works best when we treat people like people.

Turning Outstanding Warrants into Open Doors

A practical, community-based justice strategy to reduce system strain while strengthening public trust

BY KENNETH WILSON, ICMA-CM

For many residents, an outstanding misdemeanor warrant is not the result of serious criminal behavior. It often traces back to something far more ordinary—a missed court appearance, an unpaid fine, or a notice that never arrived in the mail.

Yet that single unresolved issue can quietly close doors: to employment, to housing, to legally driving to work or school. It can also pull individuals deeper into the justice system at significant cost to them as well as the local government system.

In Franklin County, Ohio, leaders asked a simple question: What if resolving low-level warrants were easier, safer, and less expensive for everyone?

The result is the Tap in Center, a monthly, appointment-based initiative that allows residents with eligible non-violent misdemeanor warrants to resolve their cases without fear of arrest. Launched in fall 2024, the program reflects a growing shift among counties toward practical, community-based justice strategies that reduce system strain while strengthening public trust.

From Conference Idea to Local Implementation

Commissioner Erica C. Crawley first encountered the model at the 2024 National Association of Counties Annual Conference. After visiting St. Louis County, which had implemented a similar program, she returned home convinced Franklin County could adapt the concept for its own community.

“This isn’t about punishment,” Crawley said. “It’s about accountability, dignity, and giving people a real opportunity to move forward.”

Under the leadership of the Franklin County office of justice policy and programs, the county worked with its municipal court, public defender’s office, city attorney’s office, and other partners to design a localized version. The aim was straightforward: resolve low-level warrants efficiently while connecting participants to stabilizing services.

Why Location Matters

A defining feature of the Tap in Center is where it operates. Sessions are held at branches of the Columbus Metropolitan Library rather than at courthouses.

The decision was deliberate. For many individuals, walking into a courthouse with an outstanding warrant can trigger fear and avoidance. Libraries, by contrast, are familiar and trusted civic spaces. They reduce psychological barriers and signal that the event is designed to help, not punish.

Sessions run in the late afternoon and evening to accommodate working residents. Participants must call ahead to confirm eligibility and schedule an appointment. The program is limited to non-violent, low-level misdemeanor and traffic cases in Franklin County Municipal Court. While felonies and violent offenses are currently excluded, stakeholders are actively exploring whether low-level, non-violent felony warrants could be incorporated going forward.

At the event, attorneys work to recall warrants and reschedule cases. The no-arrest policy for eligible participants is explicit and foundational. Without it, participation would be compromised.

A One-Stop Approach

The Tap in Center is structured as more than a warrant-clearing program. It functions as a coordinated service hub.

Alongside court representatives and defense attorneys, residents can connect with child support enforcement, the Ohio Bureau of Motor Vehicles, Legal Aid of Southeast and Central Ohio, and job and family services. Community organizations, including Make a Day, Hope Dealers, and Mt. Carmel Homeless Outreach further extend the center’s reach, providing on-site food trucks and transportation to remove barriers for at-risk residents, including those experiencing homelessness. Together, these partners offer assistance with driver’s license reinstatement, benefit applications, child support questions, and when eligible, record sealing or expungement—all at no cost.

“An unresolved warrant can quietly erode opportunity,” Crawley said. “Resolving it can open doors almost immediately.”

This integrated approach reflects a core insight: a missed court date is often a symptom of instability, not criminal intent. Addressing the legal issue without addressing related barriers limits long-term impact.

A Resident’s Experience

Mike Scarberry experienced that dynamic firsthand. While in recovery and working to rebuild his life, he had a non-violent warrant that created constant uncertainty. Every traffic stop felt risky; every job application was complicated. He was hesitant to attend, reluctant at what he was walking into.

“I was nervous,” Scarberry said. “From my experience, you know what warrants mean.”

But after hearing from someone he trusted, he scheduled an appointment. At the event, his warrant was lifted and his case was dismissed in a single visit. He also connected with county agencies to address a child support issue and begin the process of reinstating his driver’s license. Today, he is employed and owns his own car.

“It’s safe,” he said. “If something from your past is blocking you, just go.” For counties seeking to rebuild trust in justice systems, testimonials like Scarberry’s often carry more influence than formal outreach campaigns.

The Fiscal and System Case

The Tap in Center aligns with what Franklin County calls a “smart justice” framework, strategies designed to reduce recidivism, limit unnecessary incarceration, and lower system costs.

The alternative to proactive resolution is costly. Arresting someone on a low-level warrant consumes law enforcement time, jail capacity, court resources, and public defender staff hours. It can destabilize employment and housing, increasing the likelihood of future system involvement.

By contrast, recalling warrants in a structured community setting reduces administrative burden and preserves public safety resources for higher-risk cases. It also addresses court backlogs of outstanding warrants more efficiently.

Commissioner Kevin L. Boyce emphasized the long-term perspective. “Reducing recidivism and finding solutions for justice-involved residents has long been a priority for Franklin County. The Tap in Center supports residents who may not even realize they have an outstanding court order.”

The initiative is funded through a federal justice assistance grant, a flexible funding stream often used for evidence-based justice innovations. In Franklin County, that same grant also supports respite housing and fatherhood programming, reinforcing a coordinated strategy rather than isolated interventions.

Replication Considerations for Counties

The Tap in Center model offers several practical lessons for local governments considering replication:

Leverage trusted infrastructure. Community spaces like libraries or recreation centers lower participation barriers and signal that the program is designed to help, not punish.

Make eligibility and guarantees explicit. A transparent no-arrest policy for qualifying participants is essential to building trust and driving turnout.

Coordinate across agencies. Legal resolution alone rarely stabilizes residents. Integrating workforce, licensing, child support, and benefits services increases long-term impact.

Use existing grant streams. Justice assistance grants and similar federal funding can provide startup support without requiring new local revenue.

Secure judicial partnership. Courts and stakeholders must be willing to recall warrants outside traditional courtroom settings. Without that cooperation, the model cannot function.

A Broader Shift in County Governance

Franklin County has framed much of its policy agenda around expanding opportunity in workforce development, housing, and economic mobility. The Tap in Center extends that framework into the justice system.

Commissioner John O’Grady summarized the philosophy. “This initiative provides a compassionate pathway to resolve legal issues, opening doors to employment, education, and housing. It empowers individuals to make positive contributions.”

At its core, the Tap in Center reflects a reframing of low-level warrants. Rather than treating them solely as enforcement matters, the county views them as solvable administrative barriers, barriers that, once removed, allow residents to participate more fully in the local economy and civic life.

The premise is straightforward: reduce fear, increase access, and people will show up to resolve their obligations. When they do, government must be prepared to respond with efficiency and respect.

Early results suggest that approach is working. Since launching in fall 2024, approximately 95% of participants seeking a warrant set-aside through the Tap in Center have been successfully accommodated—a meaningful signal for residents seeking stability and for a justice system working to reduce warrant backlogs without expanding incarceration.

For counties nationwide confronting similar challenges, Franklin County’s experience offers a replicable model grounded in partnership, practicality, and measurable system benefit.

KENNETH WILSON, ICMA-CM, is county administrator of the Board of Commissioners for Franklin County, Ohio.

MICHAEL B. COLBERT is county administrator of the Board of County Commissioners for Montgomery County, Ohio.