I have been in communication with Wisconsin's DOT - Special Plate Unit Supervisor. They stated the following information pertaining to the specifics of the $15,500 cost for creation of a new plate: 

The $15,500 would go towards a few different things, all to DMV for development of the plate:

IT development in system
Ordering of plate material

I will eventually create a fundraiser to collect funds towards this license plate creation soon. I will send the link once it has been created. Again, thank you for the support thus far. I have been contacting the reservations throughout the state of Wisconsin to help share the petition and gain further support. 

Sara