Taylor Touts Millions in Local Projects as County Faces $50.8 Million Budget Hole

 

Taylor Touts Millions in Local Projects as County Faces $50.8 Million Budget Hole

While promoting park and infrastructure spending, Finance Chairman Steve Taylor is also helping push an $858 million courthouse project as Milwaukee County’s fiscal problems deepen

By Dr. Richard Busalacchi
Franklin Community News

Milwaukee County Supervisor Steve Taylor - (D), issued another press release Wednesday, this time highlighting a package of capital projects advanced through the County’s Capital Improvements Committee.

Taylor described the package as a series of “quality-of-life” investments involving parks, playgrounds, senior facilities, transit safety and Milwaukee County’s proposed new courthouse complex.

Several of the projects are particularly relevant to Franklin and the surrounding south-suburban communities.

Among the projects appearing in Milwaukee County capital documents are:

• Bender Park Roadway and Drainage Replacement — $3,657,110

• Whitnall Golf Course Irrigation Replacement — $5,251,000

• Scout Lake Parking Lot and Paths — $1,695,670

• Hales Corners Park Playground #3 Renovation, Splashpad — $460,000

• additional roadway, park and infrastructure projects affecting the Greenfield and southwest-suburban area.

County documents confirm the Bender Park project carries a $3.657 million construction appropriation financed through general obligation borrowing. 

The County’s capital planning documents place the Whitnall Golf Course irrigation project at $5.251 million and the Hales Corners Park playground project at $460,000. 

The Scout Lake parking lot and pathway project has been priced at $1,695,670, although its history illustrates why taxpayers should be cautious about treating every project appearing in a Taylor press release as a new accomplishment attributable to Taylor. The Scout Lake proposal previously appeared as a 2026 budget amendment sponsored by Supervisors Vincent, Martin, Shea, Martinez, Alexander and Logsdon. 

Those improvements may all provide legitimate benefits to residents.

But Taylor’s latest announcement also raises a much bigger question:

At a time when Milwaukee County is preparing for another serious budget problem, is Taylor giving taxpayers the same attention to the County’s financial liabilities that he gives to announcing government spending?

That question matters because Taylor is no longer simply one of 18 County supervisors commenting on County finances.

He is Chairman of the Milwaukee County Board’s Finance Committee.

He also chairs the Capital Improvements Committee.

That puts him directly in the middle of both Milwaukee County’s operating-budget decisions and its major long-term construction commitments.

And one of those commitments dwarfs every south-suburban park project Taylor is promoting.

From $460,000 Playgrounds to an $858 Million Courthouse

The largest project moving through Taylor’s Capital Improvements Committee is Milwaukee County’s proposed Investing in Justice: Courthouse Complex.

County File 26-638 seeks authorization for a project scope of up to $857,948,000. 

Put that number in perspective.

The $460,000 Hales Corners playground splash pad project represents roughly five one-hundredths of one percent of the proposed courthouse scope.

The $1.696 million Scout Lake project is approximately two-tenths of one percent.

The $3.657 million Bender Park roadway project is less than one-half of one percent.

Even the $5.251 million Whitnall Golf Course irrigation replacement is well under one percent of the courthouse project’s potential cost.

Combined, those four south-suburban projects total approximately $11.06 million.

The proposed courthouse complex is nearly 78 times larger.

That is the scale taxpayers should keep in mind when reading a press release celebrating local capital improvements.

Taylor’s Biggest Capital Priority

Taylor has become one of the County Board’s most visible supporters of moving the courthouse project forward.

The project is intended to replace the aging Public Safety Building and modernize Milwaukee County’s criminal-court facilities.

There is little dispute that the current building has serious deficiencies.

But Taylor has increasingly framed the new complex as an example of responsible investment rather than treating its extraordinary cost as the dominant fiscal issue it is.

In Wednesday’s release Taylor said:

“This project is about more than replacing an aging building. It is about making our justice system safer, more efficient, and more accountable while being responsible stewards of taxpayer dollars.”

The words “responsible stewards” deserve scrutiny when the project carrying that description has a potential scope approaching $858 million.

County documents show that only a year ago the courthouse initiative was still being discussed around a substantially lower estimated remaining cost.

The County Comptroller’s review of the 2026 recommended budget described the project as potentially becoming the most expensive capital project in Milwaukee County history. 

The question is no longer whether the old facility needs work.

The question is whether Milwaukee County can responsibly absorb a project approaching $858 million while maintaining the rest of its infrastructure and balancing its operating budget.

Plenty of Press Releases

Taylor has never been reluctant to publicize his activities.

His official Milwaukee County page contains a lengthy archive of press releases and public statements.

When the Bender Park boat launch reopened, Taylor issued a release.

When he convened an “expectation-setting” meeting with County department heads, there was a release.

When his committees act on projects, Taylor regularly issues statements emphasizing his leadership and fiscal stewardship.

There is nothing improper about an elected official informing constituents about government activity.

But the pattern creates a legitimate question:

Is Taylor equally aggressive about publicizing the financial consequences of the decisions he helps make?

Because Milwaukee County has some very difficult numbers ahead.

A $50.8 Million Structural Deficit

Milwaukee County’s own five-year financial forecast projects a $50.8 million structural deficit for 2027.

That means continuing expenditures are projected to exceed continuing revenues by more than $50 million.

A structural deficit is not simply a temporary shortfall caused by an unexpected expense.

It means the underlying cost of providing existing government services is growing faster than the revenue available to pay for them.

Taylor did not create Milwaukee County’s longstanding structural problems.

They predate his Finance chairmanship by many years.

But Taylor now chairs the committee specifically responsible for helping determine what comes next.

That makes his actions considerably more important than his rhetoric.

Taylor Said Difficult Decisions Were Coming

Earlier this year, Taylor summoned County department officials for what his office called an “expectation-setting” meeting.

Taylor warned that Milwaukee County was approaching one of its most difficult financial periods in years.

That was an appropriate warning.

But announcing that hard decisions are coming is much easier than making them.

The Finance chairman will soon have to answer questions that cannot be solved through press releases:

What spending should be cut?

Which departmental requests should be rejected?

Which services should taxpayers continue funding?

Should taxes or fees increase?

How much additional borrowing can Milwaukee County sustain?

And how does an $858 million courthouse fit into that picture?

Local Projects Tell Only a Small Part of the Story

Residents understandably pay attention when money is invested close to home.

A reconstructed Bender Park roadway benefits Oak Creek and other southeastern County residents.

A modernized Whitnall Golf Course irrigation system benefits one of the County’s major recreational assets.

A new Hales Corners playground provides an obvious community benefit.

Scout Lake improvements would benefit Greendale and residents throughout the southwest suburbs.

But these projects also provide useful perspective.

South-Suburban Capital Projects

Hales Corners Park Playground Splash pad #3 — $460,000

The County’s 2027 capital request identifies $460,000 for renovation of the playground. 

Scout Lake Parking Lot and Paths — $1,695,670

The proposed project includes reconstruction of the parking lot and surrounding pathways, drainage improvements, storm sewer work, grading, lighting and related improvements. 

Bender Park Roadway and Drainage Replacement — $3,657,110

The Oak Creek-area project includes reconstruction of the roadway and walkway leading toward the boat launch and lakefront, together with drainage, slope stabilization, stormwater and other infrastructure work.

Whitnall Golf Course Irrigation Replacement — $5,251,000

County capital documents identify $5.251 million for replacement of the Whitnall Golf Course irrigation system. 

Combined value: approximately $11.06 million.

Those are significant investments.

But compare them with Taylor’s largest capital initiative:

Investing in Justice: Courthouse Complex — Up to $857,948,000

The proposed courthouse project alone is approximately $846.9 million greater than those four south-suburban projects combined. 

That is the financial context missing from the feel-good language of a typical capital-investment press release.

Were These Really Taylor’s Projects?

There is another issue worth examining.

County capital projects do not suddenly materialize when a committee chairman issues a press release.

Projects typically move through years of departmental requests, engineering studies, capital scoring, budget recommendations and committee review.

Some of the projects Taylor is now highlighting clearly predate his current announcement.

Scout Lake provides a particularly useful example.

The $1.696 million project appeared in a 2025 amendment to the 2026 budget sponsored by Supervisors Vincent, Martin, Shea, Martinez, Alexander and Logsdon.

Taylor was not one of the sponsors.

County records actually show that during Finance Committee consideration, Taylor voted with the majority on a motion rejecting that amendment. 

The Whitnall Golf Course irrigation project likewise has a long history.

County records show it was under consideration years before Taylor’s current press release, including design-contract activity dating back to 2022 and Capital Improvements Committee consideration in 2024 and 2025. So taxpayers should distinguish between two very different things:

Taylor supporting a project as committee chairman, and

Taylor actually originating or securing the project.

Press releases have a way of blurring that distinction.

The Courthouse Is Different

The courthouse project is another matter.

Taylor has placed himself much more directly in the center of that debate.

His committees are now considering authorization involving a project scope up to $857.948 million.

County officials have argued that the existing Public Safety Building has outlived its useful life and that a replacement facility is essential.

But a project of this magnitude demands more than assurances that it will create efficiencies.

Taxpayers deserve straightforward answers:

How much will Milwaukee County actually borrow?

What will annual principal and interest payments be?

How many years will taxpayers be paying for it?

What portion of outside funding is guaranteed?

What happens if future state assistance does not continue at projected levels?

What other County capital projects will be delayed because of courthouse borrowing?

And what happens if Milwaukee County simultaneously has to close a $50.8 million operating-budget gap?

Those are questions for the Finance chairman.

And Taylor is the Finance chairman.

Public Relations Versus Financial Accountability

Taylor’s latest announcement tells residents about playgrounds, roadways, golf-course irrigation and other tangible improvements.

Those make attractive headlines.

A $50 million structural deficit does not.

Neither does hundreds of millions of dollars in long-term debt.

But governing is not primarily about announcing what taxpayers receive.

It is also about explaining what taxpayers owe.

Franklin Community News contributor Kevin Fischer raised that issue bluntly last week when he questioned where Taylor has been as Milwaukee County’s 2027 budget problems become increasingly apparent.

Fischer’s language was intentionally sharp.

But his underlying point deserves consideration.

Taylor has no difficulty generating publicity when he wants constituents to associate him with positive news.

The real measure of his Finance Committee leadership will be whether he displays the same enthusiasm when the subject is cutting spending, rejecting departmental requests, confronting debt or explaining how Milwaukee County intends to finance an $858 million courthouse.

Taylor Cannot Claim the Credit Without Accepting the Responsibility

Steve Taylor did not create Milwaukee County’s decades-old financial problems.

That needs to be acknowledged.

But Taylor sought leadership.

He accepted the Finance Committee chairmanship.

He accepted leadership of the Capital Improvements Committee.

And he regularly uses those positions to promote accomplishments publicly.

That means the standard changes.

If Taylor wants political credit when $460,000 is proposed for a playground, he should expect questions about an $858 million courthouse.

If he wants credit for $3.7 million at Bender Park, he should be prepared to explain the County’s structural deficit.

And if he wants to call himself a fiscal conservative, the 2027 budget provides an opportunity to demonstrate what that phrase means when he actually has the power to influence the outcome.

Watch the Budget, Not the Press Releases

South-suburban residents should welcome legitimate investments in Hales Corners Park, Scout Lake, Whitnall Golf Course, Bender Park and other County facilities.

But four of the most visible projects in the surrounding area total approximately $11 million.

The courthouse project Taylor is helping advance carries a potential scope approaching $858 million.

And Milwaukee County is simultaneously confronting another major structural budget problem.

That is the story residents should watch.

There will undoubtedly be more Steve Taylor press releases.

The more important question is what happens when the Finance chairman has to move beyond announcing what government is spending and start explaining how Milwaukee County intends to pay for it.

Taylor spent years pointing at Milwaukee County’s financial problems.

Now he chairs the committee expected to help solve them.

This piece reflects the author’s personal opinion and experiences. All statements are presented as commentary protected under the First Amendment. Readers are encouraged to review public records, filings, and documented evidence referenced throughout this article.

Dr. Richard Busalacchi is the Publisher of Franklin Community News, where he focuses on government transparency, community accountability, and local public policy. He believes a community’s strength depends on open dialogue, honest leadership, and the courage to speak the truth—even when it makes powerful people uncomfortable.

🕯️ The solution isn’t another insider in a new office. It’s sunlight, scrutiny, and the courage to vote differently.

Because until voters demand honest, transparent government, the corruption won’t stop — it will only change titles.

Elections have consequences — and Franklin’s next one may decide whether transparency makes a comeback.

💬 If you value hard-hitting, fact-based investigative reporting about our hometown of Franklin — follow Franklin Community News on Facebook.

Together, we can keep local government honest, transparent, and accountable 

— for the greater good.

© 2026 Franklin Community News. All rights reserved.

Join Us at:

 https://www.facebook.com/share/g/1a3NsgvAGn/

 

Court of Appeals Rules Franklin Mayor John Nelson Entitled to Milwaukee County-Paid Retiree Health Insurance

Three-judge panel reverses circuit court; benefit could be worth hundreds of thousands of dollars over Nelson's lifetime in addition to his Milwaukee County pension

By Dr. Richard Busalacchi
Franklin Community News

FRANKLIN, Wis. — Franklin Mayor John Nelson has won a significant appellate victory against his former employer, Milwaukee County, establishing a vested contractual right to County-paid health insurance premiums in retirement.

In an August 18, 2026 decision, a three-judge Wisconsin Court of Appeals District I panel reversed Milwaukee County Circuit Court Judge Glenn Yamahiro and directed the circuit court to enter summary judgment in Nelson's favor.

The decision could ultimately provide Nelson with a retiree health benefit worth hundreds of thousands of dollars over his lifetime, separate from the Milwaukee County pension he earned during more than 26 years of County employment.

The appellate case, however, is not yet procedurally complete. The Wisconsin appellate docket currently lists John R. Nelson v. County of Milwaukee, Appeal No. 2024AP1458, as “Pending Remit,” with remittitur anticipated September 17, 2026. 

What Nelson Won

The dispute centers on the 2009–2012 collective bargaining agreement between Milwaukee County and the Milwaukee Deputy Sheriffs' Association.

Section 3.11(6) states that employees hired before July 1, 1995, upon retirement, may continue in the County Group Health Benefit Program with Milwaukee County paying the full monthly cost. To qualify, an employee must have at least 15 years of creditable service as a County employee.

Nelson began working for Milwaukee County on October 17, 1994, as a nonrepresented corrections officer. He became a Milwaukee County deputy sheriff and MDSA member on April 14, 1995.

While the CBA remained in effect, Nelson completed 15 years of County service. On January 31, 2010, he accepted a promotion to lieutenant and left the MDSA bargaining unit. In March 2012, he transferred to a nonrepresented position with the Milwaukee County Parks Department.

Years later, Milwaukee County told Nelson that he would not qualify for premium-paid retiree health insurance because he had not been hired before January 1, 1994—the cutoff contained in a County ordinance.

Nelson sued.

Circuit Court Initially Sided With Milwaukee County

Judge Yamahiro concluded that Nelson did not possess a vested right under the CBA and that the County ordinance controlled his eligibility.

Because Nelson was hired in October 1994 rather than before January 1, 1994, Yamahiro granted summary judgment to Milwaukee County and dismissed Nelson's breach-of-contract and declaratory-relief claims.

Nelson appealed.

The appellate docket shows Nelson's opening brief was filed September 24, 2024, Milwaukee County responded December 10, 2024, and Nelson filed his reply January 9, 2025. The case was submitted to the Court of Appeals on the briefs on September 3, 2025.

The Court of Appeals issued its decision nearly a year later.

Court Says CBA Controls Over Conflicting Ordinance

Milwaukee County argued that Nelson was subject to the January 1, 1994 hire-date cutoff contained in the County ordinance.

The Court of Appeals disagreed.

Another section of the CBA expressly states that when the agreement conflicts with existing ordinances or resolutions, those ordinances and resolutions are modified to reflect the agreement.

The appellate court therefore concluded:

“CBA § 6.01 is clear and unambiguous: in the event of any conflict between the CBA and the MCGO, the CBA controls.”

As a result, Nelson's October 1994 hiring date did not disqualify him. The applicable CBA cutoff was July 1, 1995.

Did Nelson Have to Retire While the CBA Was in Effect?

That presented the more difficult issue.

Milwaukee County argued that the language “upon retirement” meant Nelson had to retire while still an MDSA member and while the CBA remained in effect.

Nelson argued that his benefit had already vested after satisfying the CBA's requirements and that “upon retirement” merely identified when he would begin receiving the benefit.

The Court of Appeals concluded the CBA was ambiguous.

It noted that other provisions of the same agreement contained specific retirement dates when the parties intended them. Section 3.11(6), by contrast, contained no deadline by which an eligible employee had to retire.

The Court ultimately concluded that both interpretations were reasonable and therefore turned to evidence concerning what the parties actually intended.

Former Union President's Affidavit Becomes Critical

That evidence proved decisive.

Former MDSA President Roy M. Felber, who participated in negotiating the CBA, submitted an affidavit stating that the parties intended the premium-free retirement health benefit to fully vest when an employee hired before July 1, 1995 accumulated 15 years of creditable County service.

Felber further stated that once vested, the employee remained entitled to the benefit even after leaving the MDSA bargaining unit.

Milwaukee County did not submit competing evidence concerning the parties' intent. Instead, it argued that Felber's affidavit should be disregarded as “self-serving.”

The Court rejected that argument.

Because Milwaukee County produced no evidence contradicting Felber's testimony, the Court held that his testimony had to be taken as true for summary-judgment purposes.

The Court then reached its central conclusion:

“Nelson has a fully vested right to County-paid health insurance premiums in retirement.”

The appellate docket identifies Austin Felber and Christopher MacGillis as Nelson's appellate attorneys.

Austin Felber should not be confused with Roy Felber, the former MDSA president whose affidavit became important to the outcome.

County's Own 2018 Legal Memo

Nelson had also presented a 2018 memorandum prepared by attorneys in the Milwaukee County Office of Corporation Counsel addressing County-paid retiree health insurance for former MDSA employees.

The Court noted that the memo supported Nelson's interpretation but declined to base its decision upon it because the parties disputed its admissibility.

The victory therefore did not depend upon the County's internal legal memorandum.

Court Rejects County's Reliance on Earlier Cases

Milwaukee County relied heavily upon Wisconsin cases including Monreal, Schwegel and Loth to argue that Nelson's benefit could not vest unless he actually retired under the CBA.

The Court of Appeals concluded that reliance was misplaced.

It held that there is no universal rule requiring retirement under a CBA because vesting ultimately depends upon the terms of the collective bargaining agreement.

The Court also distinguished Loth and Schwegel because those cases involved retiree benefits created through municipal ordinances rather than collective bargaining agreements.

What Is Nelson's Health Benefit Worth?

The appellate decision does not award Nelson a lump sum of money.

Instead, it establishes his contractual right to have Milwaukee County pay his health-insurance premiums in retirement.

That distinction is important when estimating the financial impact.

Nelson was born in December 1970 and is divorced. Assuming individual coverage, Franklin Community News estimates that his County-paid retiree health benefit could have a lifetime value reaching well into six figures.

Using current Milwaukee County individual retiree-health costs as a starting point and applying different assumptions for future health-insurance premium growth, an illustrative lifetime value through age 85 is approximately:

Assumed annual premium growth	Estimated health-benefit value through age 85
3%	$261,000
5%	$341,000
7%	$457,000

A middle-range 5% assumption therefore produces an estimated lifetime value of approximately $340,000.

These are FCN projections, not an amount awarded by the Court. Actual costs will depend upon when Nelson becomes eligible to begin retiree coverage, future County health-plan premiums, Medicare, longevity and other plan provisions.

Nelson's Milwaukee County Pension Is Separate

The health-insurance benefit comes in addition to Nelson's Milwaukee County pension.

Nelson worked for Milwaukee County from October 1994 until 2021, accumulating approximately 26 years and eight months of County employment.

Because his career included represented deputy-sheriff service followed by nonrepresented County employment, calculating his exact ERS pension requires applying the appropriate pension rules to his individual service history.

Based upon publicly available County employment and salary information, FCN estimates Nelson's eventual pension at approximately:

$3,500 to $4,000 per month

or approximately:

$42,000 to $48,000 per year

The midpoint would be approximately $3,750 per month, or $45,000 annually.

That figure should not be confused with an official Milwaukee County ERS calculation. FCN has not obtained Nelson's individual pension-benefit statement, and the actual amount could be higher or lower.

By the Numbers

Based on the information presently available:

Benefit	Estimated value
Estimated monthly County pension	$3,500–$4,000
Estimated annual County pension	$42,000–$48,000
Midpoint pension estimate	~$45,000/year
Current individual pre-Medicare health premium benchmark	~$14,500/year
Estimated lifetime health benefit through age 85	~$261,000–$457,000
Middle health-benefit projection	~$341,000

That means Nelson's Milwaukee County retirement package could initially carry an economic value of approximately $55,000 to more than $60,000 per year when pension and County-paid pre-Medicare health coverage are considered together.

Again, that is an estimate of economic value—not a cash payment or court award.

Nelson’s Employment History Includes Multiple Internal Investigations

Nelson’s appellate victory also brings renewed attention to the Milwaukee County career from which both his pension and newly affirmed retiree-health benefit arise.

Nelson worked for Milwaukee County for more than 26 years. His career included service as a corrections officer, deputy sheriff and lieutenant before he moved to Milwaukee County Parks, where he served as Safety, Security and Training Manager until leaving County employment in 2021.

Nelson’s Milwaukee County career also included multiple internal investigations. In later public comments, Nelson acknowledged that Milwaukee County had investigated allegations including sexual harassment and cheating on an examination. Nelson denied wrongdoing and maintained that he was never disciplined over those allegations. Contemporary reporting also indicates that public-records requests later sought records concerning nine Milwaukee County internal investigations involving Nelson. FC News WI

In 2024, Nelson went to court in an effort to prevent the release of Milwaukee County personnel and internal-investigation records requested under Wisconsin’s public-records law. Reporting on the litigation states that Nelson argued disclosure could cause irreparable harm to his reputation. Urban Milwaukee

There is an important distinction, however. The information presently available establishes that Nelson was the subject of investigations during his Milwaukee County career, but it does not establish sufficiently that his June 2021 departure from Milwaukee County occurred while those particular investigations were still pending. FCN therefore is not making that assertion without additional documentation.

Waterford Departure Came During Active Investigation

Nelson’s later departure from the Town of Waterford Police Department presents a much clearer chronology.

Nelson worked part-time for Waterford while also pursuing his political career in Franklin. In 2024, complaints concerning Nelson and other department personnel resulted in an investigation and administrative leave.

News reports confirm that Nelson was among Waterford Police Department personnel placed on administrative leave while the Town investigated complaints. The Town subsequently retained an outside investigator. Wisconsin NewsMedia Association

Records obtained by news organizations described allegations against Nelson that included fostering a hostile work environment; sexual harassment or inappropriate comments involving female officers; retaliation; preferential scheduling; improper use of Town resources while campaigning for Franklin mayor or conducting Franklin governmental business; and other workplace-conduct allegations. Wisconsin NewsMedia Association

Nelson has strongly denied wrongdoing and has characterized the allegations and investigation as politically motivated.

Then, while that investigation remained pending, Nelson retired from the Waterford Police Department effective October 11, 2024. WISN reported at the time that his retirement occurred “amid an investigation” and that the matter was understood to be a personnel investigation rather than a criminal probe. WISN

FOX6 subsequently reported that the investigation ended when Nelson retired. The station also noted that Nelson had not been criminally charged. FOX6 News Milwaukee

That distinction is significant. Nelson’s retirement before completion of the investigation does not establish that the allegations against him were true or constitute a finding of misconduct. It does establish that Nelson left Waterford before the investigative process produced a final employment determination on those allegations.

From Waterford Investigation to Another Retiree-Health Dispute

There is another connection relevant to the Milwaukee County appellate victory.

After retiring from Waterford, Nelson subsequently challenged the loss of his Waterford retiree health coverage. In December 2025, Nelson filed suit against the Town of Waterford contending that the applicable collective bargaining agreement entitled him to remain on the Town’s health-insurance plan during retirement. FC News WI

That means Nelson has pursued retiree-health benefit claims involving two former public employers.

In the Milwaukee County case, he has now prevailed at the Court of Appeals, which held that he possesses a fully vested contractual right to County-paid health-insurance premiums in retirement.

His separate dispute with Waterford concerns whether that municipality also has a continuing obligation to provide retiree health coverage following his October 2024 retirement.

The two cases involve different employers, contracts and legal circumstances and should not be treated as legally interchangeable. But together they add an important dimension to Nelson’s public-employment history: retiree health benefits from both Milwaukee County and Waterford have become the subject of litigation following his departure from those government employers.

Decision Not Recommended for Publication

The Court of Appeals decision concludes with the notation:

“Not recommended for publication in the official reports.”

That does not make the decision unofficial or diminish Nelson's victory in his own case.

Rather, it means the panel did not recommend that the opinion become a published Wisconsin appellate precedent carrying the same precedential effect in other cases.

The panel did not explain why it made that recommendation.

The opinion largely turns on interpretation of this particular collective bargaining agreement and the fact that Milwaukee County did not submit evidence contradicting Roy Felber's testimony concerning the parties' intent.

Case Remains “Pending Remit”

Nelson has won the appeal, but the appellate docket shows that the case has not yet formally returned to Milwaukee County Circuit Court.

As of the current docket, its status is:

“Pending Remit.”

The Court of Appeals currently anticipates remittitur on September 17, 2026. Remittitur is the procedural step by which jurisdiction returns from the Court of Appeals to the circuit court.

Once that occurs, Judge Yamahiro is not being asked to decide the underlying eligibility question again. The appellate mandate is explicit:

“We reverse and remand to the circuit court to enter summary judgment in Nelson's favor.”

Milwaukee County may still seek review by the Wisconsin Supreme Court. The August 18 opinion expressly advises that an adversely affected party may petition the Supreme Court for review. Unless further appellate proceedings alter the result, however, the central question has been resolved in Nelson's favor:

Franklin's mayor has a vested contractual right to have Milwaukee County pay his health-insurance premiums in retirement—in addition to the pension he earned during his County career.

This piece reflects the author’s personal opinion and experiences. All statements are presented as commentary protected under the First Amendment. Readers are encouraged to review public records, filings, and documented evidence referenced throughout this article.

Dr. Richard Busalacchi is the Publisher of Franklin Community News, where he focuses on government transparency, community accountability, and local public policy. He believes a community’s strength depends on open dialogue, honest leadership, and the courage to speak the truth—even when it makes powerful people uncomfortable.

🕯️ The solution isn’t another insider in a new office. It’s sunlight, scrutiny, and the courage to vote differently.

Because until voters demand honest, transparent government, the corruption won’t stop — it will only change titles.

Elections have consequences — and Franklin’s next one may decide whether transparency makes a comeback.

💬 If you value hard-hitting, fact-based investigative reporting about our hometown of Franklin — follow Franklin Community News on Facebook.

Together, we can keep local government honest, transparent, and accountable 

— for the greater good.

© 2026 Franklin Community News. All rights reserved.

Join Us at:

 https://www.facebook.com/share/g/1a3NsgvAGn/

From Enchant to SnowGlobe to FrostFest: What Happened to Ballpark Commons’ Previous Holiday Traditions?

Part 1 of a 3 Part Investigative Series

As FrostFest sells tickets before final city approval could be located, Franklin Common Council President Michelle Eichmann’s extensive record of motions and votes involving ROC Ventures adds another issue to watch when the new festival reaches the city’s licensing process.

By Dr. Richard Busalacchi
Franklin Community News

FRANKLIN, Wis. — Three years ago, Ballpark Commons welcomed a massive Christmas attraction to Franklin Field with predictions of hundreds of thousands of visitors and hopes that it would become a year-over-year holiday tradition.

It was called Enchant Christmas.

A year later, the holiday attraction returned with a different identity:

SnowGlobe Holiday Festival — Powered by Enchant.

SnowGlobe was still included among ROC Ventures’ planned Ballpark Commons events as late as April 2025.

Now another holiday festival is coming to Franklin Field.

This one is called FrostFest — Wisconsin’s Winter Festival.

And once again, families are being invited to begin a tradition.

A current FrostFest Facebook advertisement announces:

“A new Wisconsin winter tradition is coming to Ballpark Commons!”

But the latest reinvention raises questions about what happened to the traditions that came before it — and about what consumers are being promised this time.

Enchant Was Supposed to Become a Tradition

Enchant Christmas made its Wisconsin debut at Franklin Field in November 2023.

The nationally touring attraction featured a massive illuminated Christmas maze, ice skating, Santa Claus, entertainment, food and beverages and a holiday marketplace.

Expectations were enormous.

Early promotional materials projected nearly 300,000 visitors from throughout the Midwest.

By opening night, organizers were projecting approximately 250,000 visitors during the 29-night run and more than $30 million in economic impact for southeastern Wisconsin.

ROC Ventures CEO Michael Zimmerman publicly described a much longer-term ambition.

“Our biggest goal with this event is to make it a legacy goal — a tradition, if you will,” Zimmerman told WISN during Enchant’s November 2023 opening.

Zimmerman said the goal was to hold it “year over year.”

Yet a final publicly reported Franklin attendance figure has been difficult to locate.

That absence is particularly notable because Franklin officials apparently sought information about the event after it concluded.

A March 5, 2024 Franklin Common Council agenda packet stated that information concerning Enchant requested by the Council had not yet been received for its review.

The following month, an April 16 Common Council agenda included:

“ROC PRESENTATION — ENCHANT CHRISTMAS EVENT.”

Council minutes indicate no action was taken following that presentation.

What ROC reported to alderpersons could answer an important question that remains unresolved publicly:

How did Enchant’s actual performance compare with the extraordinary attendance and economic-impact projections made before the event?

A Year Later, Enchant Became SnowGlobe

When the holiday attraction returned in 2024, it had a new name.

Ballpark Commons marketed it as:

“SnowGlobe Holiday Festival (Powered by Enchant)”

Ballpark Commons’ own event page made the connection explicit.

Zimmerman was quoted saying:

“We are excited to bring Enchant back to Milwaukee.”

The page remains online and categorized under “Enchant.”

SnowGlobe therefore was not simply another unrelated Christmas event occupying Franklin Field.

Ballpark Commons itself presented it as the return of Enchant under a new festival identity.

Social House Entertainment also became involved with SnowGlobe.

Contemporary reporting identified Social House personnel discussing festival operations and refunds after SnowGlobe’s opening was delayed.

Social House Entertainment also filed a federal trademark application for SNOWGLOBE in June 2024 covering holiday festivals and related entertainment services.

But SnowGlobe would not become the long-term identity either.

SnowGlobe Was Still Planned in 2025

The disappearance of SnowGlobe is particularly interesting because city records indicate ROC Ventures still contemplated the event after its 2024 season.

An April 17, 2025 Franklin Plan Commission agenda packet contains a ROC Ventures document addressing sound levels for planned Ballpark Commons events.

Among them:

“SNOWGLOBE HOLIDAY.”

That means SnowGlobe remained in ROC Ventures’ plans as late as April 2025.

Publicly available materials reviewed for this story, however, have not established that a comparable SnowGlobe holiday festival ultimately occurred in 2025.

One remnant remains online.

Ballpark Commons’ old SnowGlobe event page continues to link visitors to SnowGlobe’s Milwaukee website.

As of Aug. 20, 2026, that page remains live with the message:

“SEE YOU NEXT YEAR!”

The page does not say when the message was posted, so it cannot establish which year “next year” meant.

But SnowGlobe is not what is returning to Franklin Field in 2026.

Now It’s FrostFest

The latest holiday identity is FrostFest — Wisconsin’s Winter Festival, scheduled to run from Nov. 19 through Dec. 27.

Its social-media advertising announces:

“A new Wisconsin winter tradition is coming to Ballpark Commons!”

The advertisement promotes holiday light displays, ice skating, a giant winter slide, festive food and drinks and other attractions.

FrostFest’s website similarly promotes holiday lights, live entertainment, holiday music, Santa and holiday characters, food and beverages, a marketplace and photo opportunities.

Additional attractions include ice skating, a giant snow slide, rides, games and professional photography.

Many are similar in type to experiences previously offered through Enchant and SnowGlobe.

But FrostFest is being introduced as something new.

That makes the history worth remembering.

In 2023, Enchant was supposed to become the tradition.

In 2024, that tradition became SnowGlobe.

In 2026, families are being invited to start another one.

Facebook Ads Promote “Early Bird Tickets Start at Just $12”

FrostFest’s social-media advertising is already generating questions from prospective customers about what the festival’s heavily promoted $12 ticket price actually buys.

A Facebook advertisement reviewed for this story tells prospective customers:

“Early Bird tickets start at just $12.”

It encourages customers to purchase by Aug. 31 for the “lowest ticket prices of the year,” complimentary parking and the best selection of dates and arrival windows.

What the Facebook advertisement does not say is that $12 is the promotional children’s admission price.

FrostFest’s detailed pricing lists early-purchase tickets at:

Adults, ages 13 and older — $22

Children, ages 3 through 12 — $12

Children age 2 and younger are free.

The festival lists regular adult admission at $24 and peak adult admission at $28.

The $12 Price Continues Into the Ticketing Process

The distinction is not immediately apparent when customers begin selecting tickets.

For the Nov. 19 opening date reviewed for this story, the ticketing system displayed:

5:30 p.m. Entry — $12.00+

6:30 p.m. Entry — $12.00+

7:30 p.m. Entry — $12.00+

After selecting an arrival window, however, the customer is presented with the actual categories:

Adult Ticket — $22

Child Ticket — $12

The $12 ticket therefore exists.

But among the ticket options reviewed for this story, there was no $12 adult admission.

The sequence presented to a customer is:

Facebook ad: “Early Bird tickets start at just $12.”

FrostFest website: “Lowest ticket prices of the year, starting at just $12.”

Arrival window: “$12.00+.”

Ticket category: Adult $22 / Child $12.

Customers Are Asking Where the Discounted Tickets Are

Comments appearing beneath FrostFest’s Facebook advertising show that some prospective customers have already struggled to understand the offer.

One commenter asked:

“Does anyone know how to order and receive the discounted price? No matter which date I choose - it comes up full price?”

Another wrote:

“Misleading ad. $12 is a children's price.”

Other consumers asked where FrostFest is located, whether tickets could be transferred if a selected date no longer worked and whether photographs or video of the attraction were available.

No FrostFest response was visible beneath those questions in the portion of the post reviewed for this story.

That does not establish that FrostFest never responded elsewhere or whether festival personnel were actively monitoring the post.

But the comments do establish something more limited:

Prospective customers are publicly questioning how to obtain the price featured in FrostFest’s advertising.

The consumer-transparency question is straightforward:

Would a prospective customer understand from “Early Bird tickets start at just $12” that $12 is the children’s price while adult admission starts at $22?

The distinction could be made explicit simply by advertising:

“Early Bird adult tickets start at $22; children’s tickets start at $12.”

Franklin Is Repeating the $12 Message

The promotional language is not limited to FrostFest’s own social-media advertising.

Engage Franklin (Part 3 of our 3 part series) also promotes FrostFest with the “starting at just $12” language without identifying the $12 amount in that prominent promotion as the children’s admission price.

That matters because FrostFest’s detailed pricing shows adult early-purchase admission beginning at $22.

It also means the pricing message is being amplified beyond FrostFest’s own advertising.

The Extras Can Increase the Price

The admission ticket does not include every FrostFest attraction.

FrostFest currently lists ice skating at $10, the Giant Snow Slide at $5, games and activities at $5, professional photography at $20, and a Premier Pass at $25 in addition to admission.

The Premier Pass includes skating and skate rental, unlimited use of the snow slide, participating rides and attractions and other benefits, but does not include admission.

An adult purchasing the $22 promotional admission and $25 Premier Pass would therefore spend $47 before food, beverages, photography or other purchases.

A family consisting of two adults and two children purchasing promotional admission and Premier Passes for everyone would spend $168 before those additional purchases.

Parking is normally listed at $20 per vehicle, although FrostFest says parking is complimentary during the early-purchase promotion.

“Frost Fest” Isn’t a New Name in Milwaukee

FrostFest is a new name for Ballpark Commons’ holiday attraction, but “Frost Fest” is not new to the Milwaukee area.

The Milwaukee Public Market held its first Frostfest in February 2026.

The War Memorial Center separately promoted its 4th Annual Frost Fest in 2026.

There is no evidence reviewed for this story suggesting either event is connected to the Ballpark Commons festival.

Ballpark Commons’ event distinguishes itself online through FrostFestWI.com and the tagline “Wisconsin’s Winter Festival.”

There is also an existing federal trademark registration involving the name.

Arkansas-based BensBrew LLC obtained a federal registration for FROST FEST in 2024 and claims use dating to 2015. Its registration concerns beer and certain charitable beer-festival entertainment services.

That does not establish that the Franklin FrostFest infringes the registration. Trademark rights depend on factors well beyond similar names.

It does establish that the term was already federally registered for certain festival-related services before the Franklin event launched.

Meanwhile, FrostFest’s consumer-facing website does not prominently identify the legal company producing the Franklin event.

Its footer states:

“Copyright © 2026 FrostFest | Wisconsin’s Winter Festival.”

A copyright footer does not identify the legal operator or establish trademark ownership.

The identity of that operator may become clearer through Franklin’s municipal approval process.

Tickets Are Being Sold — But Where Is the City Approval?

FrostFest is already advertising and selling tickets for its November opening.

But a review of publicly available Franklin Common Council and License Committee records through Aug. 20, 2026 did not identify final approval specifically for FrostFest.

That does not establish that FrostFest lacks required municipal authorization.

An application may have been submitted without yet appearing in a publicly posted meeting packet, and the event remains months away.

But Franklin’s handling of Enchant and SnowGlobe demonstrates that major holiday attractions at Franklin Field have gone through the city’s licensing process.

And that process introduces another significant figure into the FrostFest story:

Franklin Common Council President and District 2 Alderwoman Michelle Eichmann.

Common Council President Michelle Eichmann’s ROC Ventures Record Could Matter for FrostFest

On April 21, 2026, Eichmann nominated herself for Common Council president. Alderman Yousef Hasan also sought the position. Eichmann prevailed 4-2 in a secret-ballot vote. 

Her role is significant because she simultaneously serves on several bodies with responsibilities potentially relevant to Ballpark Commons.

Eichmann is currently a member of the License Committee, Plan Commission, Economic Development Commission and Personnel Committee, among other assignments.

Her License Committee appointment for the current term was confirmed at the same April 21 meeting at which she became Council president. 

The License Committee consists of three alderpersons and is charged with reviewing business-license applications and making recommendations to the Common Council. Eichmann currently serves alongside Alderwoman Danelle Kenney and Alderman Clarke Johnson.

That means Eichmann is not simply one of six alderpersons who may eventually vote on a FrostFest matter.

She is Common Council president and a member of the committee involved in the city's licensing review.

Her history with ROC Ventures and Ballpark Commons applications makes that dual role particularly relevant.

Eichmann’s Involvement Dates Back to Enchant

Eichmann’s involvement with the Ballpark Commons holiday attraction reaches back to its original Enchant incarnation.

During the 2023 licensing process, a motion was made to hold over the ROC Ventures-Enchant Christmas matter until a subsequent License Committee meeting.

The motion passed 2-1.

Eichmann was the lone vote against holding the matter over.

The record establishes her vote. It does not, by itself, establish her reason for opposing the delay.

Her involvement with ROC Ventures matters continued after Enchant.

More Than an Occasional Vote

City records reviewed for this story show Eichmann repeatedly participating in decisions involving ROC Ventures and Ballpark Commons.

And in a number of instances, her role went beyond simply casting a vote.

In May 2024, Eichmann seconded a motion involving the licensed business/entity name ROC Ventures LLC, doing business as Ballpark Commons/The Rock Sports Complex.

That same evening, she seconded motions to approve ROC Ventures’ proposed post-Milkmen fireworks and Summer Concert Series.

Both proposals failed 2-4.

On the fireworks proposal, Eichmann was one of only two alderpersons voting for approval.

She was likewise one of only two supporting the Summer Concert Series proposal.

That is relevant because it shows instances in which Eichmann supported ROC Ventures proposals even when a majority of her Council colleagues did not.

It does not establish why.

The Pattern Continued

Eichmann continued participating in ROC Ventures applications in 2025 and 2026.

In April 2025, she seconded the motion approving ROC Ventures’ post-Milkmen fireworks as an Extraordinary Entertainment & Special Event subject to conditions.

When an additional ROC Ventures fireworks date was subsequently brought before the Council because it had been inadvertently omitted from the original application, Eichmann moved to approve it.

The motion passed 5-1.

Her involvement continued into 2026.

In February, Eichmann moved to approve ROC Ventures’ fireworks and drone shows at Franklin Field.

The motion passed unanimously.

She also moved to approve ROC Ventures’ 17-date Umbrella Bar Summer Concert Series, including a 10:35 p.m. hard stop and 65-decibel condition.

And when ROC Ventures’ Country Rising and Tacos & Tequila festivals reached the Council, Eichmann made the initial motion to approve them.

That motion failed for lack of a second.

Eichmann then moved to table the applications.

The record therefore shows something more specific than simply describing Eichmann as generally supportive or opposed to ROC Ventures.

Franklin’s current Common Council president has repeatedly made, seconded and voted on motions affecting ROC Ventures and Ballpark Commons.

Nothing in that record by itself establishes an improper relationship between Eichmann, Zimmerman or ROC Ventures.

But it does make her role particularly relevant when another significant Ballpark Commons attraction reaches Franklin’s approval process.

Why Eichmann's ROC Ventures Record Matters for FrostFest

The important issue is not whether Eichmann should be presumed to support FrostFest.

There is no basis for making that assumption before the application is considered.

The importance lies in the municipal process.

As a License Committee member, Eichmann may participate when licensing matters are reviewed and recommendations are developed.  This is common practice.

As an alderwoman, she can participate when those recommendations reach the full Common Council.

And as Common Council president, she now holds a leadership position on the legislative body ultimately considering many of those matters.

Her presidency is not merely ceremonial in every circumstance. City minutes from July 2 show Eichmann calling a special Common Council meeting to order as Council president when Mayor John Nelson was absent. 

That combination makes the FrostFest proceedings worth watching closely.

Not because Eichmann’s past votes prove what she will do.

They don't.

But because a city official who has been involved with Ballpark Commons matters since Enchant arrived now occupies an even more prominent position as Franklin considers the development’s newest holiday attraction.

What Will the License Committee Ask?

If FrostFest comes before the License Committee, the public proceedings provide an opportunity to answer questions that remain unclear from the event's consumer-facing materials.

Who legally owns and operates FrostFest?

Which company is selling the tickets?

Who assumes financial responsibility for the event?

What is the maximum ticket capacity?

How many visitors are projected?

What are the operating hours?

What amplified entertainment is planned?

What sound limits will apply?

There is also a consumer question that now deserves attention:

Will committee members ask about FrostFest advertising tickets “starting at just $12” when the $12 promotional ticket reviewed for this story is the children's admission price and adult admission starts at $22?

Those questions should not depend on whether an alderperson historically supported or opposed ROC Ventures.

They are basic questions that officials can ask of any company seeking approval for a major multi-week entertainment event.

SnowGlobe Shows What the Approval Process Can Reveal

The 2024 SnowGlobe process demonstrates why FrostFest's eventual application matters.

SnowGlobe appeared before Franklin as an Extraordinary Entertainment & Special Event.

City records publicly identified the person in charge, Franklin Field as the location and 25 planned operating days.

The Common Council ultimately approved the event subject to conditions that included a 65 dBA sound limit.

Because SnowGlobe operated for weeks, Franklin also required a periodic review addressing possible noise violations, complications and documented sound exceedances.

Franklin's current Extraordinary Entertainment & Special Event process remains active. The License Committee is specifically charged with reviewing license applications and making recommendations to the Council.

No comparable publicly available FrostFest application or final approval was located in the records reviewed for this story through Aug. 20.

The Application Could Answer What the Advertising Doesn't

When the FrostFest application becomes public, it may answer questions that the event's website currently does not.

Who is the legal operator?

Who owns or controls the FrostFest brand?

Who is financially responsible?

How many tickets can be sold?

What attendance does the operator project?

What hours will it operate?

What amplified entertainment is planned?

What neighborhood protections will be required?

And what conditions will Franklin impose?

None of the repeated branding changes establishes wrongdoing.

Neither does Eichmann's record of voting for or advancing ROC Ventures matters establish an improper relationship.

But both are relevant parts of the public history.

2023 — Enchant Christmas: introduced with enormous attendance projections and a stated goal of becoming a year-over-year tradition. Eichmann opposed a License Committee motion to delay consideration of the ROC Ventures-Enchant matter.

2024 — SnowGlobe Holiday Festival, Powered by Enchant: Ballpark Commons presented the attraction as Enchant's return under a new identity.

2025 — SnowGlobe remained in ROC Ventures' plans: city records continued to identify “SNOWGLOBE HOLIDAY.”

2026 — FrostFest: another name, another marketing campaign and another invitation to begin a winter tradition. Meanwhile, Eichmann is now president of the Common Council while continuing to serve on the License Committee. Her election as Council president and committee appointment were confirmed in April. 

This time, consumers are already buying tickets.

Some are publicly asking where they can find the advertised $12 price.

And as of Aug. 20, final FrostFest approval could not be identified in the publicly available License Committee and Common Council records reviewed for this story.

That gives Franklin officials — including Common Council President Michelle Eichmann and the other members of the License Committee — an opportunity to establish the answers before opening night.

Three years ago, Enchant was supposed to become the tradition.

Today, FrostFest is asking families to start another one.

Before Franklin embraces its newest winter tradition, its licensing process should make clear who is behind it, what consumers are actually buying, what conditions will govern it — and what happened to the traditions that came before.

The upcoming series will provide:

We also examine Common Council President Michelle Eichmann’s documented role in ROC Ventures matters.

PART 2 — THE $78,500 SOUND STUDY
Franklin taxpayers paid for answers about Ballpark Commons sound. Why hasn't the complete study been released?

PART 3 — FOLLOW THE HOTEL-TAX MONEY
We examine Engage Franklin, ROC Ventures/ROC Enterprises, Michael Zimmerman, Common Council relationships and approximately $1.5 million connected to Franklin Field naming rights. What does Engage Franklin provide taxpayers and the tourism industry in return for its share of Franklin's hotel-tax revenue?

This piece reflects the author’s personal opinion and experiences. All statements are presented as commentary protected under the First Amendment. Readers are encouraged to review public records, filings, and documented evidence referenced throughout this article.

Dr. Richard Busalacchi is the Publisher of Franklin Community News, where he focuses on government transparency, community accountability, and local public policy. He believes a community’s strength depends on open dialogue, honest leadership, and the courage to speak the truth—even when it makes powerful people uncomfortable.

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