The Knowles-Nelson Stewardship Grant program, established in 1989 to help Wisconsin obtain and maintain its natural areas expired Tuesday. Cause of death, according to advocates, was legislative obstinance. 

Initially created through a bipartisan piece of legislation, the program has helped local governments build boat launches, playgrounds, bike paths and hiking trails in every corner of the state; helped land trusts and non-profits obtain and conserve thousands of acres of forest land and helped the Department of Natural Resources grow and manage Wisconsin’s state parks. 

“Every single community has a boat launch, or a playground, or a neighborhood park, or a bike path that was funded with Knowles Nelson dollars,” said Charles Carlin, the director of strategic initiatives for Gathering Waters, an alliance of 40 land trusts around Wisconsin.  “So, the state just looks a lot different than it would if we didn’t have Knowles Nelson, and we all have more opportunities to get outside and enjoy all these places that make Wisconsin special than we would have without the program.”

Since its inception, the program has enjoyed broad support from voters and been seen as a national model for land conservation systems. However, in recent years, a handful of Republican legislators — largely representing the northern parts of the state — began to sour on the program’s aims. 

This group has argued that too much land in northern Wisconsin has been conserved, leaving  struggling local governments without enough of a property tax base to fund their budgets or grow their communities. An analysis by the Examiner found that most of the public land in northern Wisconsin is national forest land and that land purchased through Knowles-Nelson is a tiny portion of Wisconsin’s public lands portfolio. 

Opposition to the program was supercharged after the state Supreme Court ruled that the Legislature’s Republican-controlled Joint Finance Committee was unconstitutionally exercising its power by allowing members to anonymously hold up any proposed land acquisitions through Knowles-Nelson. 

The decision angered legislators who had previously been able to quietly stop projects in their districts, and the program suddenly faced energized opposition. Proposals that aimed to bring together bipartisan support to continue the program from Gov. Tony Evers, a handful of Republicans and the Legislature’s Democratic caucus failed to gain traction during the most recent legislative session. 

“Scoring a few political points in the Capitol at the expense of your community and of your voters just encapsulates what people hate about politics right now,” said Carlin. “What happened this session is a very small number of Republican senators decided that political retribution inside the Capitol in Madison was more important than good policy for their constituents. That’s bad governance. It undermines their own communities, and I would hope that they are questioning that choice, perhaps regretting it. I think we’re all going to be looking to see what happens in November, and to see, gosh, are there consequences for choosing to govern like that?” 

With the program’s expiration this week, legislative Democrats have stated that if voters elect Democratic majorities in the Legislature and a Democratic governor next year, re-authorizing the program will be among the first priorities. 

Senate Minority Leader Diane Hesselbein (D-Middleton) said at an event Tuesday morning at Governor Gaylord Nelson State Park in Waunakee that with trifecta control of government, Democrats would bring the program back.

“Senate Republicans … have ensured that towns and cities across our state do not have the money to repair boat launches or keep our trails safe,” she said. “They have made it impossible for the state to preserve more of our landscape, giving developers free rein. They have decided to disregard the will of the residents, and no wonder why the Republican party is losing so much at the polls. The expiration of this program today is just another example of Republican failures, but my message to Wisconsin is very simple: Vote for Democrats in November, and we promise, especially with the Democratic trifecta, we will bring the Knowles Nelson Stewardship Program back in full force, so people can enjoy nature regardless of their zip code, every single place in the state of Wisconsin.” 

Sen. Jodi Habush Sinykin (D-Whitefish Bay), one of the authors of the failed Democratic bill to reauthorize the program, told the Examiner Monday that the expiration was just a “pause.” 

Habush Sinykin said that she’s working on ways to get a Knowles-Nelson bill through the Legislature no matter the result of the November elections. 

“We’ll find out just in a matter of months what we have to work with,” she said. “But we have quite a bit of give with regard to how we can keep the program going forward productively, in terms of funding and for oversight mechanisms. And again, I would be certainly grateful to be able to work across the aisle and with legislators in my own party to come up with the Knowles Nelson reauthorization program that makes sense for Wisconsin. It contributes so much to our state and local economies and quality of life. It really is a wise investment.” 

Even if a bill to restart the program is introduced immediately at the start of the next session and fast tracked to the governor’s desk, it could be close to a year before the program is back on track. Carlin said that because of the long-term planning required for the type of land acquisitions funded through Knowles-Nelson, the “ripple effects go way beyond that 12-month period of time.” 

“Every single land trust and every single local government is cash strapped, and they are strained for capacity as well. There’s more to do than there is people and money to get it done,” he said. And so, as the future of Knowles Nelson became more and more uncertain, you know, land trusts, they really ramped down their land acquisition planning. Because if they don’t have a sense of how the heck they’re going to fund a project, they don’t pursue it. And so what that means is, is fewer conversations are happening with prospective landowners, that fewer negotiations about land purchases are happening. And that’s not an on/off switch; it takes a while to ramp that up and to get going again.” 

Carlin added that the state knows there’s a growing maintenance backlog for the state’s outdoor recreation facilities and a need to help communities across the state build infrastructure to manage the effects of climate change. 

“By pulling the rug out from under ourselves to make those investments for a year, we’re causing delays that might wind up lasting three years or five years until we get ourselves back on track, even when Knowles Nelson is fully funded,” he said. “So you know what’s done is done, and now we’ve just got to figure out how to fix it and get back on track as quickly as possible.”