TWRA seeks operating and capital support, cites reserves and proposes fee changes as license revenues stall

The Tennessee Wildlife Resources Agency (TWRA) briefed the House Finance, Ways and Means Committee on March 3 about a budget strain driven by stagnant license sales, rising costs and increasing demand for access, and requested general‑fund support to address personnel and operational shortfalls.

Director Max Don and TWRA deputies said the agency is funded primarily through hunting and fishing license sales, federal apportionments (Pittman‑Robertson for wildlife; Dingell‑Johnson for fish/sport fish restoration), marine fuel taxes, and a real‑estate transfer‑tax wetlands acquisition fund. The director told the committee license sales are effectively flat and that the agency is “about 32% behind on CPI” because fees have not kept pace with inflation since the last fee increase in 2015.

Why it matters: TWRA manages roughly 1.6 million acres (550,000 acres under state ownership) across 137 wildlife management areas and operates 21 shooting ranges, 1,200 boat access areas and multiple hatcheries. The agency said constrained revenue threatens maintenance, law enforcement coverage, and public access programs.

Key elements of TWRA presentation

- Fee and reserve picture: TWRA said wildlife fund reserves total approximately $63,000,000 (about six months of operating costs), the boating fund reserve is roughly $20,000,000 (16 months) and the wetlands fund reserve is about $23,000,000 (15 months). The agency reported a Fish and Wildlife Commission vote approving a fee increase proposal that will proceed through the legislative process; director said the increase would be effective July 1, 2025, if approved by required bodies.

- Funding model challenges and R3 initiative: Director Don described hunting and fishing license sales as stagnant nationwide and said TWRA is pursuing recruitment, retention and reactivation (R3) programs to expand participation. The agency emphasized that federal apportionment dollars must be spent and cannot be commingled with state funds, which affects budget operations.

- Land acquisitions and access: TWRA reported 66,000 acres acquired in FY24 (noting most was a single large block on the Cumberland), and said the wetlands acquisition fund purchases are limited to willing sellers and must follow statutory and appraisal rules. Don said most acquisitions aim to join existing wildlife management areas and that purchases are for willing sellers at appraised value.

- Disease and wildlife concerns: Persistent avian influenza detections in wild birds, chronic wasting disease monitoring and human‑bear conflicts in some tourist areas were cited as operational concerns that affect wildlife and public safety.

- Lake Halford user fees: TWRA staff reported first‑year collection at Lake Halford generated about $164,003 (daily/annual user fees, marina fees and one‑time dock permits) but said compliance and concessionaire arrangements affect collection; the agency said revenues flow into the wildlife fund and are not currently earmarked for Lake Halford alone.

Questions from members

Committee members raised affordability concerns for hunters and anglers, the scale and cost of land management, the economic effects of TWRA‑owned lands on county tax bases and the tradeoffs inherent in acquiring property for public access. Director Don said the agency has repurposed vacant positions, deferred maintenance and is actively evaluating programs and partnerships to reduce costs while protecting access.

Ending

Don asked the committee to consider the agencyfunding request, which included general fund support cited in the governor's package for salary compensation and other adjustments; the committee did not take immediate action during the hearing.