This is reminiscent of then-State Senator Barack Obama's "present" votes in the Illinois Senate. Clearly Burke saw a definitive vote in either direction controversial, at least controversial enough that she didn't want to be on the record with her opinion.
Perhaps she thought raising the cost of the program, which is eye-popping to me, would be a way to both dodge the vote and establish some fiscal responsibility cred. I honestly don't know. But all it did was give conservatives more fodder about a candidate for an executive position that doesn't know how to lead. And we have a current example of that type of executive in American government today that we need not duplicate in Wisconsin.