A sign acknowledging Stewardship program support at Firemen's Park in Verona. (Henry Redman | Wisconsin Examiner)

Democrats in the Wisconsin state Legislature released their proposal for saving the broadly popular Knowles-Nelson Stewardship Grant program from lapsing next year. The bill marks the latest step in a legislative effort to save the conservation program — a goal for which members of both political parties have expressed optimism.  

The stewardship grant program through the Department of Natural Resources allows the state to fund the purchase and maintenance of public lands. Created 35 years ago, the program is supported by a large swathe of Wisconsin voters, but a subset of Republicans in the Legislature have grown increasingly hostile to its continuation. 

Those Republicans argue the burden of land conservation falls largely on their rural districts in northern Wisconsin, which has the most land available for recreational purposes but the state purchasing that land takes it off the property tax rolls.

Republicans have also complained that the program lacks legislative oversight since the state Supreme Court ruled in a 6-1 decision last year that the Legislature’s Joint Finance Committee doesn’t have the authority to hold up projects through the program. 

Sen. Mary Felzkowski (R-Tomahawk), one of the program’s strongest critics, has suggested she’d support re-authorizing the program if it included provisions that capped the amount of government-owned land in a county or allowed counties to sell off existing conservation land.

Without action, the program will end next summer. In his initial budget proposal, Gov. Tony Evers had asked for the program to be provided $100 million per year for 10 years. The version of the budget signed into law in July did not include the program’s re-authorization. 

Another bill authored by Republican Rep. Tony Kurtz (R-Wonewoc) and Sen. Patrick Testin (R-Stevens Point) would re-authorize the program for six years at $28 million per year. To gain the support of the Republicans who want more oversight of the program, the bill would require that any land acquisitions that cost more than $1 million be approved by the full Legislature. 

Tuesday’s proposal from Democrats would re-authorize the program for six years at $72 million per year. The bill would also create an independent board with oversight authority over the program. 

The 17-member board would include members of the majority and minority in both chambers of the Legislature; two representatives from environmental organizations; two representatives of hunting, fishing or trapping interests; two DNR representatives, including one member from the Natural Resources Board; one representative from the Department of Tourism; one representative of the outdoor recreation industry; one representative from the Ice Age Trail Alliance; a representative of a federally recognized Native American tribe in the state; one local government representative and two members of the public. Members of the board would serve staggered three-year terms. 

Under the bill, the board would meet at least quarterly and have the authority to advise the DNR on all projects through the program. On projects involving grants of more than $2.5 million, the board would have full approval authority. If the board doesn’t meet to vote on a project within 120 days, it would be automatically approved. 

The Democratic proposal has been co-sponsored by all 60 Democrats in the Assembly and Senate, signaling the broad support for the bill among the Democratic caucuses. 

Sen. Jodi Habush Sinykin (D-Whitefish Bay) tells the Wisconsin Examiner that the proposal involves a lot of thoughtful effort from Democrats trying to make a “good faith” effort to answer Republican concerns about oversight over the program while getting it re-authorized. 

“Our intent in introducing these companion bills in the Senate and the Assembly was premised on a great deal of thought and seriousness,” she says. “That we have the expectation that Republican legislators will take it seriously, because, like us, they have been hearing from their constituents and constituents from across the state. This is an issue that people in Wisconsin 90% approve and they want action, and they want legislators to demonstrate that they can work together and lead with our shared values to get something done.”

In a statement, a spokesperson for Kurtz said his intention remains working to find a bipartisan solution to re-authorizing the program. 

“It’s always been our intention to find a bipartisan path forward to ensuring the Stewardship Program’s future,” the spokesperson said. “We haven’t reviewed their proposal yet, but look forward to continued discussions on this important issue this fall.”

Charles Carlin, the director of strategic initiatives at the non-profit land trust organization Gathering Waters, says the fate of the program is now up to Republican leaders and their ability to compromise. Carlin points out that it’s clear there aren’t 17 Republican votes in the Senate to support reauthorization. 

“As far as anybody can tell, there’s not 17 Republican senators that are going to vote to reauthorize Knowles-Nelson,” he says. “If they were to choose that strategy of trying to do this with only Republican votes, my fear and expectation is the bill would wind up becoming so weighed down with poison pills and anti-conservation measures, it would wind up not being a workable proposal. On the other hand if leaders in the Senate were willing to say ‘OK, this can be a bipartisan exercise, nobody’s going to get quite what they want,’ I think we’re going to see there are 15 Democratic senators eager to find a solution and we could get a decent bill passed with pretty overwhelming support from both parties.”

Carlin says he sees the Democrats’ oversight board idea as a good way to avoid the Joint Finance Committee “veto fiasco” that previously held up projects through the program while allowing the board to make “smart, educated and informed decisions” separate from the political games of the legislative process. 

However in recent years under Wisconsin’s divided government, legislative proposals have been met with hopes for bipartisan compromise only to end in partisan bickering. Last session, a proposal to get $125 million out the door to clean up PFAS contamination across the state died after initial optimism after Democrats and Republicans couldn’t agree on the bill’s language. 

“That’s a real concern. Where we had the most heartburn and worry coming out of the state budget, this Legislature does not have a good track record of getting things done,” Carlin says. “Even though there were promises made that legislators would come back to work and get Knowles-Nelson done, there’s not a lot of precedent for legislators working together. There are folks on the Republican Senate side who are simply not going to work in good faith to get this done.”

He says Felzkowski’s ideas on the subject are “not serious proposals” but that there are 10 or 12 Republicans in the Senate who value conservation and understand how important it is to the state’s voters. 

“If they really engage with the Democrats’ proposal and find middle ground, we can find that success without too much heartache,” he says. “We do know that everybody’s constituents want to see this get done.”