Milwaukee County Supervisor Steve Taylor’s ROC Foundation Spent More on Executive Pay Than Programs, IRS Filings Show

 

Four years of tax returns reveal executive compensation exceeding charitable spending, an 18% program ratio in 2023, payments to affiliated entities, and limited governance safeguards.

Part 1 of a 2-Part Investigation into ROC Foundation and affiliated tourism entities.

What Is ROC Foundation?

ROC Foundation is a Franklin-based nonprofit formed in 2019 and affiliated with ROC Ventures, the developer behind Ballpark Commons and The Rock Sports Complex.

According to its website, the Foundation’s mission is:

“To provide support and unique experiences for youth, high school, and young adults in sports, recreation, education, employment and wellness; through a robust network of like-minded businesses and supporters. The ROC Foundation strives to create impactful outcomes in the communities where we live, work, and play.”

Contact Information

ROC Foundation

7044 S. Ballpark Dr., Suite 300

Franklin, Wisconsin 53132

Phone: 414.224.9283

Email: foundation@rocventures.org

Executive Director: Steve F. Taylor

Board of Directors: Joe Zimmerman (President), Frank Horning (Vice President), Tom Johns (Treasurer), Tammy Sacharski (Secretary)

Taylor also serves as a Milwaukee County Supervisor. 

Timeline: ROC Foundation Financials (2020–2023)

Source: ROC Foundation IRS Forms 990 and 990-EZ for fiscal years 2020–2023, including the 2023 Form 990 filed in 2025. 

2020

• Revenue: $73,303

• Program Spending: $2,835

• Executive Compensation: $56,735

2021

• Revenue: $138,683

• Program Spending: $33,537

• Executive Compensation: $56,735

2022

• Revenue: $146,733

• Program Spending: $38,006

• Executive Compensation: $69,296

2023

• Revenue: $189,402 

• Program Spending: $23,290 

• Executive Compensation: $69,924 

From 2020 through 2022, the Foundation reported operating deficits and negative net assets. In 2023, revenue increased and expenses decreased, resulting in positive net assets. 

However, reported program spending remained comparatively low throughout the four-year period.

Program Spending: 18% in 2023

According to the 2023 Form 990:

• Total expenses: $128,508 

• Program service expenses: $23,290 

That equates to approximately 18% of total expenses devoted to program services, with the remaining majority categorized as management and general expenses. 

Nonprofit watchdog organizations frequently reference program spending ratios of 65%–70% or higher as indicative of program-focused charities. ROC Foundation’s reported ratio falls well below those commonly cited standards.

Executive Compensation vs. Program Spending

IRS filings show executive compensation exceeded total reported program spending every year

from 2020 through 2023.

2020

Executive Compensation: $56,735

Program Spending: $2,835

Compensation was approximately 20 times greater than program spending.

2021

Executive Compensation: $56,735

Program Spending: $33,537

Compensation exceeded program spending by approximately 1.7 times.

2022

Executive Compensation: $69,296

Program Spending: $38,006

Compensation exceeded program spending by approximately 1.8 times.

2023

Executive Compensation: $69,924 

Program Spending: $23,290 

Compensation exceeded program spending by approximately three times. 

Cumulative Four-Year Comparison (2020–2023)

Total Executive Compensation (4 years): $252,690

Total Program Spending (4 years): $97,668

Over four years, the Foundation spent approximately $155,000 more on executive compensation than on charitable program services.

These figures are drawn directly from publicly filed IRS returns. 

Fundraising Model and Schedule G Reporting

In prior IRS filings, ROC Foundation describes allowing other nonprofit organizations to participate in fundraising activities during Milwaukee Milkmen and Milwaukee Wave games, including raffles, 50/50 drawings, and in-game promotions.

The 2023 Form 990 includes Schedule G, which provides detailed reporting for fundraising events. 

In Schedule G:

• The Golf Tournament is separately itemized, including gross receipts and direct expenses.

• The Jersey Auction is also separately itemized with detailed financial reporting.

However, Schedule G does not separately report raffle or gaming revenue in Part III (Gaming). 

The filing does not provide:

• Gross raffle receipts

• Raffle expenses

• Net gaming income

• A breakdown of distributions to participating nonprofits

• Any allocation percentages

Raffle or in-game fundraising revenue may be included within aggregate fundraising totals, but the 2023 return does not provide a specific breakout.

Raffle Licensing

According to confirmation from the Wisconsin Department of Administration, ROC Foundation holds a Class B raffle license, which allows same-day raffle activity for a calendar year under Wisconsin law. The current license expires in May of this year.

While the license confirms authorization to conduct raffle activities, the IRS filing does not separately identify raffle revenue or detail how proceeds are allocated.

$7,989 Reimbursement to the City of Franklin

The 2023 Form 990 lists:

“Reimbursement for donation of Lucas device to City of Franklin” — $7,989 

According to the filing, the reimbursement was made to the City of Franklin.

That amount represents more than one-third of total reported program spending in 2023. 

The filing does not provide additional detail regarding the structure or approval process of the reimbursement.

$10,000 Payment to ROC Ventures LLC

The 2023 Form 990 reports a $10,000 payment to ROC Ventures LLC described as:

“Corporate Sponsorship 2023 Season.”

That payment represents approximately 43% of total program spending for 2023.

The filing does not include documentation describing the sponsorship agreement, valuation, or board approval process.

Governance Disclosures

According to the 2023 Form 990, ROC Foundation reports:

• No written conflict-of-interest policy 

• No whistleblower policy 

• No document retention policy 

• No independent process for determining executive compensation 

• The board did not review the Form 990 prior to filing 

Such safeguards are widely recommended nonprofit governance practices.

Public Office and Disclosure History

Steve Taylor, ROC Foundation’s Executive Director, also serves as a Milwaukee County Supervisor.

In December 2023, the Milwaukee Journal Sentinel reported that Taylor amended his required Statements of Economic Interests after initially failing to disclose his employment with ROC Foundation.

Later that same week, the Journal Sentinel reported that Taylor again amended his filings — this time to disclose his ownership of Steve Taylor Consulting, LLC.

For years, County Supervisor Steve Taylor failed to disclose financial ties to The Rock - Milwaukee Journal Sentinel - December 18, 2023

County Supervisor Steve Taylor fails to disclose self-named business on ethics statement - Milwaukee Journal Sentinel - December 22, 2023

According to the reporting, both amendments occurred after questions from the newspaper. The filings were subsequently corrected.

Coming Next: Part 2

Part 2 will examine:

• The $1.5 million naming rights agreement tied to Ballpark Commons

• The role of Engage Franklin and hotel room tax revenue

• Governance overlap between ROC Foundation, ROC Ventures, and tourism entities

EDITORIAL: When Executive Pay Outpaces Charity — and Filings Come Late — the Public Deserves Answers

Nonprofits exist to serve missions.

They are granted tax-exempt status in exchange for transparency, accountability, and public trust.

When a nonprofit spends more on executive compensation than on charitable programs — year after year — that is not a minor accounting detail. It is a structural signal.

IRS filings show that from 2020 through 2023, ROC Foundation — led by Milwaukee County Supervisor Steve Taylor — spent more on executive compensation than on charitable program services.

In 2023, just 18% of total expenses were devoted to program services. Executive compensation that year totaled nearly $70,000 — roughly three times what was spent on programs.

Over four years, the Foundation spent more than $250,000 on executive pay and less than $100,000 on programs.

Those numbers come directly from the organization’s own IRS filings.

There is no law requiring a nonprofit to meet a specific program-spending ratio. But when charitable output consistently trails executive compensation, donors and the public are right to ask: What is the organization prioritizing?

Governance Without Guardrails

According to the 2023 Form 990, the Foundation reports:

• No written conflict-of-interest policy

• No whistleblower policy

• No document retention policy

• No independent process for determining executive compensation

• No board review of the Form 990 prior to filing

These are not criminal violations. They are governance decisions.

But governance decisions matter — especially when public officials are involved.

The 2023 return also reports a $10,000 “corporate sponsorship” payment to ROC Ventures LLC — nearly half of the Foundation’s total program spending for the year.

The filing does not include the sponsorship agreement, valuation analysis, or documentation of any review or recusal process.

Transparency is not optional in related-party transactions. It is essential.

The Fundraising Transparency Gap

Schedule G of the 2023 Form 990 separately itemizes revenue and expenses for the Foundation’s golf tournament and jersey auction.

However, the filing does not separately report raffle or gaming revenue — despite the organization holding a Wisconsin Class B raffle license.

The return does not disclose:

• Gross raffle receipts

• Net raffle proceeds

• Allocation percentages

• Amounts distributed to participating nonprofits

Revenue from in-game fundraising activities appears in aggregate totals without detailed breakout.

When a nonprofit’s charitable activity centers around participation-based fundraising models, clarity about how much money flows through the system — and where it ultimately goes — is fundamental.

The Filing Timeline — And the Delayed Transparency Question

ROC Foundation operates on a calendar tax year (January 1–December 31).

Under federal law:

• The 2023 Form 990 was due May 15, 2024 (November 15, 2024 with extension).

• The 2024 Form 990 was due May 15, 2025 (November 15, 2025 with extension).

The 2023 return was filed in 2025 — after its statutory deadline.

If the 2024 return has not been filed as of now, it is delinquent.

Automatic revocation of tax-exempt status occurs only after three consecutive required returns are not filed. Because the 2023 return was ultimately submitted, the three-year automatic revocation threshold was not triggered.

But that is not the central issue.

The issue is delayed transparency.

Form 990 is not a technicality. It is the public’s window into nonprofit governance, compensation, and mission alignment.

When required filings appear only after deadlines pass — or after scrutiny begins — public confidence erodes.

The solution is simple:

• Confirm filing dates.

• Confirm extension status.

• Confirm current IRS standing.

• Ensure filings are timely moving forward.

Compliance should not require prompting.

Public Office Raises the Standard

Steve Taylor is not just a nonprofit executive.

He is a sitting Milwaukee County Supervisor who participates in decisions involving public resources, parkland policy, and county finance.

In December 2023, the Milwaukee Journal Sentinel reported that Taylor amended required ethics filings — twice in the same week — after omissions were identified regarding his nonprofit employment and his consulting business. Those disclosures were later corrected.

Corrections happen.

But when public office and nonprofit leadership intersect, the standard must be higher — not lower.

The public is not asking for perfection.

It is asking for alignment.

Does spending reflect mission?

Are governance safeguards in place?

Are filings timely and transparent?

Are related-party transactions documented?

Those are not partisan questions. They are stewardship questions.

The Bottom Line

The issue here is not whether ROC Foundation is legal.

The issue is whether its structure reflects the mission it promotes.

When executive pay exceeds program spending for four consecutive years…

When governance safeguards are absent…

When fundraising allocations are not clearly disclosed…

When required filings appear late…

The public deserves answers.

Transparency builds trust.

Delay diminishes it.

And when a public official leads a charity, accountability is not an attack.

It is the baseline expectation.

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/