A Fight for the Future: Wisconsin’s Knowles-Nelson Stewardship at a Crossroads

The Knowles-Nelson Stewardship Program is a rare bipartisan success story in Wisconsin. For decades, it has protected our natural resources while boosting local economies across the state. Investments through the program have enhanced public lands and outdoor infrastructure, drawing tourists, increasing property values, and supporting local businesses. Named after Governors Warren Knowles, a Republican, and Gaylord Nelson, a Democrat and founder of Earth Day, the stewardship program funded land purchases and provided grants to local governments and nonprofits to protect natural resources for public use. It had touched all 72 counties and transformed thousands of acres into parks, trails, wetlands, and wildlife preserves.

Governor Evers’ Ambitious Plan

Democratic Governor Tony Evers unveiled a proposal in early 2025 to reauthorize the program for another 10 years with $1 billion in funding, a tripling of its annual budget from $33 million to $100 million.

“This is about more than dollars. It’s about ensuring our children and grandchildren have places to hunt, hike, fish, and breathe fresh air,” Evers said in a speech to the Wisconsin Conservation Congress. He argued that the increasing threats of development, climate change, and habitat loss required a more aggressive approach to conservation.

Governor Evers’ timing is spot-on. According to a report by the Wisconsin Policy Forum, Wisconsin currently has its lowest debt level in more than 25 years.

The Opposition

While conservationists cheered Evers’ proposal, others bristled. Republican legislators expressed concerns about rising state debt, transparency, and the role of unelected officials in approving projects. Created to protect Wisconsin’s natural landscapes, the program had long transcended political divisions. But now Stewardship finds itself in political crosshairs.

Rep. Adam Neylon (R-Pewaukee), chair of the Assembly’s Committee on Government Accountability, called the governor’s plan “fiscally reckless.” “This is not just about forests and fields—it’s about accountability,” he said. Neylon pointed to instances where the Natural Resources Board approved land purchases that local municipalities objected to, arguing that communities deserve more say. Senate Majority Leader Devin LeMahieu (R-Oostburg) raised questions about long-term borrowing. “We need conservation, but we also need fiscal discipline,” he remarked during a legislative session. “Our stewardship shouldn’t become a burden on future taxpayers.”

One of the most vocal critics, Rep. Shae Sortwell (R-Two Rivers), even proposed a drastic alternative: eliminate borrowing and switch to a pay-as-you-go model funded by annual appropriations. Environmental groups called the move a death knell.

A Legal Victory

Tensions heightened in 2024 when the Wisconsin Supreme Court struck down the Legislature’s use of anonymous “pocket vetoes.” These vetoes had allowed members of the powerful Joint Finance Committee to block Knowles-Nelson projects without public votes or explanation.

Rep. Katrina Shankland (D-Stevens Point), a longtime advocate for the program, called the court’s ruling “a victory for sunlight.” “For years, transformative conservation projects were quietly killed behind closed doors,” she said. “Now we have a chance for accountability—and justice.” The ruling reverberated across the political landscape, forcing legislators to take public stances on stewardship proposals for the first time in decades.

A Bipartisan Bridge—
Or a Compromise?

Recently, a new stripped-down version of Stewardship came about in Assembly Bill 315. Rep. Tony Kurtz (R-Wonewoc) and Sen. Patrick Testin (R-Stevens Point) introduced a bill to extend the program for four more years. It included oversight measures requiring local government input, public hearings, and a review board to assess environmental impacts. “It’s not perfect,” Testin said, “but it keeps the heart of the program beating while making sure taxpayers and communities have a say.”

Assembly Bill 315, if approved, would allocate $28.25 million annually over four years for Stewardship, including $500,000 annually for Friends of State Parks Groups.

Groups such as Gathering Waters and The Nature Conservancy expressed caution about the proposal, calling it a positive step despite falling far short of Evers’ proposed funding. Gathering Waters noted that the bill may hinder new land protection by requiring the DNR to prioritize management over acquisition. Additionally, the proposed oversight process for major land acquisitions lacked clear procedures, timelines, or guarantees of project votes.

Underfunded Infrastructure

In recent years, the emphasis of the Stewardship Program has transitioned from land acquisition to the enhancement and maintenance of state land infrastructure, much of which is aging and insufficiently funded. Wisconsin’s state parks currently face over $1 billion in deferred maintenance. Notably, in 2015, taxpayer support for state park operations was discontinued, positioning Wisconsin as one of the few entirely self-funded state park systems nationwide. Much of the existing infrastructure, initially constructed during the 1930s by the Civilian Conservation Corps, now requires significant repair or replacement.

Outdoor recreation is a vital component of Wisconsin’s economy, contributing over $10 billion annually to the state’s GDP and expanding at nearly twice the rate of the overall economy over the past decade. This sector underpins close to 10,000 manufacturing jobs and drives a $25 billion tourism industry. However, Wisconsin ranks last among states in per-visit funding for state parks, falling behind states such as Mississippi and Texas.

Despite its demonstrated effectiveness, the Knowles-Nelson Stewardship Program continues to encounter political and financial challenges. Although many subprograms mandate a 50% local matching contribution—thereby doubling the state’s financial leverage—overall funding remains inadequate. To address these issues, it is essential to consider sustainable alternatives to long-term debt financing. Options include utilizing a portion of the state’s surplus to retire existing debt and create a permanent endowment, implementing a State Parks Passport program modeled after Michigan’s—which generates three times the revenue of Wisconsin’s current park sticker—and dedicating a modest percentage of sales tax revenue to conservation initiatives.

Wisconsin spends approximately $20 million annually on its state park operations—far less than neighbors like Minnesota and Michigan, which invest $70–$90 million. And it shows. Visitors encounter crumbling bathrooms, outdated septic systems, unsafe trails, and closed facilities due to disrepair. Many families rely on public lands for affordable access to nature, recreation, and mental well-being—they can’t afford private cottages or land.

The Future of Stewardship

The Stewardship Program is essential to Wisconsin’s environment, economy, and quality of life. A recent 2025 New Bridge Survey found that 91% of voters support continued funding—including 80% of Republicans and MAGA-aligned voters. Voters also view legislators more favorably when they support Stewardship.

Senator Jodi Habush Sinykin (D-River Hills) is working to advance a balanced, bipartisan Stewardship bill. “Without a doubt, the Knowles-Nelson Stewardship program remains a remarkably popular and beloved initiative in our state, with over 90 percent of Wisconsinites supporting the investment of public funds for conservation.” Habush conveyed via email correspondence.  “Throughout the budget process, I worked hard to get the word out about the vital importance of this program to Wisconsin’s future, reaching out to legislators on both sides of the aisle. I strongly believe that the Wisconsin State Legislature must come together to preserve this program, which has championed and protected Wisconsin’s beautiful places and natural resources for over 30 years.”

In addition to deteriorating state land infrastructure, central to the issue are locations such as the Ice Age Trail, the Lower Wisconsin Riverway, and the Baraboo Hills—valuable natural resources maintained through stewardship funding. Without renewal, future land acquisitions may not be possible.

Local officials from Bayfield to Kenosha have spoken. “Our county parks depend on these funds,” said Bayfield County Supervisor Charly Ray. “Without them, we lose not just land—we lose access, community pride, and tourism dollars.”

Stewardship plays a vital role in outdoor recreation and significantly affects all silent sports. Consider sharing your views on Stewardship with your legislator. Locate your legislator here: https://maps.legis.wisconsin.gov/?lat=&lon=&address=

As of press time, it’s looking bleak.  Republican sponsored bills would severely limit the program. Will Wisconsin continue the bipartisan legacy of stewardship set forth by Knowles and Nelson—or will shifting politics and budgetary caution shutter this popular program?