by Madeline Heim and Caitlin Looby, Milwaukee Journal Sentinel, Louisiana Illuminator
April 19, 2025

ASHLAND, Wis. — In less than 10 years, three catastrophic floods ravaged northwestern Wisconsin and changed the way people think about water. 

The most severe, in July 2016, slammed Ashland with up to 10 inches of rain in less than a day — a month’s worth of rain fell in just two hours. As rivers swelled to record highs, major highways broke into pieces and culverts washed away. It took months for roads to reopen, with more than $41 million in damage across seven counties. 

The Marengo River, which winds through forests and farmland before meeting the Bad River that flows into Lake Superior, was hit hard during these historic deluges. Centuries earlier, the upper watershed would have held onto that water, but logging and agriculture left the river disconnected from its floodplain, giving the water nowhere safe to go. 

Today, the Marengo River stands as an example of a new kind of solution. Following the record floods, state leaders invested in opening up floodplains and restoring wetlands to relieve flooding. As the need to adapt to disasters grows more urgent, the Marengo River serves as an example that there’s a cheaper way to do so: using wetlands. 

“We can’t change the weather or the patterns… but we can better prepare ourselves,” said MaryJo Gingras, Ashland County’s conservationist. 

Wetlands once provided more natural flood storage across Wisconsin and the Mississippi River Basin, soaking up water like sponges so it couldn’t rush further downstream. But about half of the country’s wetlands have been drained and filled for agriculture and development, and they continue to be destroyed, even as climate change intensifies floods.

As the federal government disposes of rules to protect wetlands, environmental advocates want to rewrite the ecosystem’s narrative to convince more people that restoration is worth it. 

Wetlands aren’t just pretty places, advocates argue, but also powerhouses that can save communities money by blunting the impact of flood disasters. A 2024 Wisconsin law geared at preventing such disasters before they happen, inspired by the wetland work in the Marengo River watershed, is going to test that theory. 

“Traditionally, the outreach has been, ‘We want to have wetlands out here because they’re good for ducks, frogs and pretty flowers,’” said Tracy Hames, executive director of the Wisconsin Wetlands Association. “What do people care about here? They care about their roads, their bridges, their culverts … how can wetlands help that?” 

Bipartisan bill posed wetlands as flood solution

Northern Wisconsin isn’t the only place paying the price for floods. Between 1980 and 2025, the U.S. was struck by 45 billion-dollar flood disasters, according to the National Oceanic and Atmospheric Administration, with a cumulative price tag of nearly $206 billion. Many parts of the vast Mississippi River Basin receive up to eight inches more rain annually than they did 50 years ago, according to a 2022 analysis from Climate Central, a nonprofit organization that analyzes climate science. 

Damaging floods are now so common in the states that border the Mississippi River, including Wisconsin, that the issue can’t be ignored, said Haley Gentry, assistant director of the Tulane Institute on Water Resources Law and Policy in New Orleans. 

“Even if you don’t agree with certain (regulations) … we absolutely have to find ways to reduce damage,” Gentry said.

Former Wisconsin state Rep. Loren Oldenburg, a Republican who served a flood-prone district in southwest Wisconsin until he lost the seat last year, was interested in how wetlands could help.

Oldenburg joined forces with Republican state Sen. Romaine Quinn, who represents northern Wisconsin and knew of the work in the Marengo River watershed. The lawmakers proposed a grant program for flood-stricken communities to better understand why and where they flood and restore wetlands in areas that need the help most. 

Jennifer Western Hauser, policy liaison at the Wisconsin Wetlands Association, met with Democratic and Republican lawmakers to advocate for the bill. She emphasized problems that might get their attention — related to transportation, emergency services, insurance, or conservation — that wetland restoration could solve. She said she got a lot of head-nods as she explained that the cost of continually fixing a washed-out culvert could vanish from storing and slowing floodwaters upstream. 

“These are issues that hit all over,” she said. “It’s a relatable problem.”   

The bill passed unanimously and was signed into law by Democratic Gov. Tony Evers in April 2024. Evers and the Republican-controlled Legislature approved $2 million for the program in the state’s most recent budget. 

Twenty-three communities applied for the first round of grant funding, which offered two types of grants — one to help assess flood risk, and another grant to help build new wetlands to reduce that risk. Eleven communities were funded, touching most corners of the state, according to Wisconsin Emergency Management, which administered the grants. 

Brian Vigue, freshwater policy director for Audubon Great Lakes, said the program shows Wisconsinites have come a long way in how they think about wetlands since 2018, when the state government made it easier for developers to build in them. 

There’s an assumption that wetland restoration comes only at the expense of historically lucrative land uses like agriculture or industry, making it hard to gain ground, Vigue said. But when skeptics understand the possible economic benefits, it can change things. 

“When you actually find something with the return on investment and can prove that it’s providing these benefits … we were surprised at how readily people that you’d assume wouldn’t embrace a really good, proactive wetland conservation policy, did,” he said. 

Private landowners need to see results

About three-quarters of the remaining wetlands in the lower 48 states are on privately owned land, including areas that were targeted for restoration in the Marengo River watershed. That means before any restoration work begins, the landowner must be convinced that the work will help, not hurt them. 

For projects like this to work, landowner goals are a priority, said Kyle Magyera, local government outreach specialist at the Wisconsin Wetlands Association, because “they know their property better than anyone else.”

Farmers, for example, can be leery that beefing up wetlands will take land out of production and hurt their bottom line, Magyera said. 

In the Marengo watershed, Gingras worked with one landowner who had farmland that wasn’t being used. They created five new wetlands across 10 acres that have already decreased sediment and phosphorus runoff from entering the river. And while there hasn’t been a flood event yet, Gingras expects the water flows to be slowed substantially.

This work goes beyond restoring wetland habitat, Magyera said, it’s about reconnecting waterways. In another project, Magyera worked on a private property where floods carved a new channel in a ravine that funneled the water faster downstream. The property now has log structures that mimic beaver dams to help slow water down and reconnect these systems. 

Now that the first round of funding has been disbursed in Wisconsin’s grant program, grantees across the state are starting work on their own versions of natural flood control, like that used in Marengo. 

In Emilie Park, along the flood-prone East River in Green Bay, a project funded by the program will create 11 acres of new wetlands. That habitat will help store water and serve as an eco-park where community members can stroll through the wetland on boardwalks.

In rural Dane County, about 20 miles from the state capital, a stretch of Black Earth Creek will be reconnected to its floodplain, restoring five and a half acres of wetlands and giving the creek more room to spread out and reduce flood risk. The creek jumped its banks during a near record-breaking 2018 rainstorm, washing out two bridges and causing millions of dollars in damage. 

Voluntary program could be of interest elsewhere

Nature-based solutions to flooding have been gaining popularity along the Mississippi River. Wisconsin’s program could serve as a “national model” for how to use wetlands to promote natural flood resilience, Quinn wrote in a 2023 newspaper editorial supporting the bill.

Kyle Rorah, regional director of public policy for the Great Lakes/Atlantic region of Ducks Unlimited, said he’s talking about the Wisconsin grant program to lawmakers in other states in the upper Midwest, and that he sees more appetite for this model than relying on the federal government to protect wetlands.  

And Vigue has found that stakeholders in industries like fishing, shipping and recreation are receptive to using wetlands as infrastructure. 

But Gentry cautioned that voluntary restoration can only go so far, because it “still allows status-quo development and other related patterns to continue.”

Still, as the federal government backs off of regulation, Gentry said she expects more emphasis on the economic value of wetlands to drive protection. 

Some of that is already happening. A 2024 analysis from the Union of Concerned Scientists found that wetlands save Wisconsin and the upper Midwest nearly $23 billion a year that otherwise would be spent combating flooding. 

“Every level of government is looking at ways to reduce costs so it doesn’t increase taxes for their constituents,” Gingras said. 

John Sabo, director of the ByWater Institute at Tulane University, said as wetlands prove their economic value in reducing flood damage costs, taxpayers will see their value. 

“You have to think about (wetlands) as providing services for people,” Sabo said, “if you want to get people on the other side of the aisle behind the idea (of restoring them).” 

And although the Wisconsin grant program is small-scale for now, he said if other states bordering the Mississippi River follow its lead, it could reduce flooding across the region.

“If all upstream states start to build upstream wetlands,” he said, “that has downstream impacts.” 

Louisiana Illuminator is part of States Newsroom, a nonprofit news network supported by grants and a coalition of donors as a 501c(3) public charity. Louisiana Illuminator maintains editorial independence. Contact Editor Greg LaRose for questions: info@lailluminator.com.

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