Introduction

The development and management of Michigan’s trail system is complex and interwoven among many different public (i.e., governmental) and private (e.g., nonprofit) organizations. There are four primary categories of organizations that are involved in trail management in Michigan.

• Federal governmental agencies such as the National Park Service (NPS) and the United States Forest Service (USFS)
• State governmental agencies such as the Michigan Department of Natural Resources (MDNR), the Michigan Department of Transportation (MDOT), and the Michigan Department of Agriculture and Rural Development (MDARD)
• Local units of government and regional planning commissions are integral in the trail management process at the county, city, village, and township levels
• Nonprofit organizations whose mission it is to help develop and maintain trails around the state (e.g., organizations such as the Michigan Trails and Greenways Alliance (MTGA) and the West Michigan Trails and Greenways Alliance)

There are numerous benefits to working with federal, state, and local agencies along with other structured organizations that provide assistance to trail managers. Agencies and organizations have resources that are vital in planning and managing a trail. For example, the DNR has an entire trails team made up of regional trail coordinators and other agency specialists devoted to working with both state and local trail planners and managers around the state. State and federal agencies also provide services like assistance with planning, public engagement, funding, route design, development of signage, and interpretive work. Nonprofit and volunteer organizations often provide critical trail maintenance support. The support for trails provided by agencies and organizations can be an essential element in planning and managing a successful trail; as such, trail planners and managers should leverage these resources when designing, building, and managing trails.

Federal Agencies

Federal agencies are created within the federal government either by Congress or the executive branch to serve a specific regulatory purpose. The directors of these agencies are typically selected by presidential appointment and serve at the pleasure of the President of the United States. There are two key federal agencies directly involved in the management of Michigan’s trail system—the National Park Service (NPS) and the United States Forest Service (USFS).

National Park Service

The NPS was created in 1916 by an act of Congress and signed into law by President Woodrow Wilson. The mission of the NPS is to “preserve unimpaired, the natural and cultural resources and values of the National Park system for the enjoyment, education and inspiration of this and future generations” (NPS 2023). The NPS is rooted in the preservation of our nation’s natural resources and is housed within the federal Department of the Interior.

The National Park Service is charged with the oversight and management of 429 recreational areas covering more than 85 million acres across the United States. These areas include national parks, national monuments, historic sites, lakeshore recreation areas, scenic rivers and trails, and other natural areas. The NPS consists of approximately 20,000 employees and engages over 300,000 volunteers each year (NPS 2024). The NPS often partners with local communities and state agencies to assist in historic preservation and the creation and maintenance of recreational spaces.

In Michigan, the NPS has a significant presence. There are seven NPS sites in Michigan covering about 279,000 acres of land. These sites include the Isle Royale National Park, Keweenaw National Historic Park, Motor Cities Natural Heritage Area, North Country National Scenic Trail, Pictured Rocks National Lakeshore, River Raisin National Battlefield Park, and Sleeping Bear Dunes National Lakeshore. Importantly, within these areas there are over 1,500 miles of recreational trails (NPS n.d.).

United States Forest Service

The USFS was established by an act of Congress in 1905. Its mission is to “sustain the health, diversity, and productivity of the nation’s forests and grasslands to meet the needs of present and future generations” (USFS n.d.b). This agency has its mission rooted in conservation, which is the wise use of natural resources; this contrasts with the preservation-based mission of the NPS.

The USFS is housed within the federal Department of Agriculture. It has approximately 30,000 permanent employees and works cooperatively with about 80,000 annual volunteers (USFS n.d.a and n.d.c). This federal agency oversees the management of 154 national forests and 20 national grasslands which cover about 193 million acres across the United States (USFS n.d.a and n.d.b). The USFS’s management area accounts for approximately 25 percent of all federal lands.

There are three national forests located in Michigan, which cover about three million acres of land. These include the Huron-Manistee, Hiawatha, and the Ottawa National Forests. These forests contain approximately 2,500 miles of trails and forest roads, which are typically designated for both motorized and nonmotorized uses.

State Agencies

There are a number of state agencies active in trail management in Michigan. State agencies typically are created or structured through gubernatorial (i.e., executive) and/or legislative action and have varying policy objectives, which include implementing new programs and enforcing statutory laws along with rule-making and administrative order authority.

Each agency is responsible for the administration and oversight of a specific public service. Directors of these agencies are appointed by the Governor of Michigan under advice and consent of the Senate. There are three key state agencies actively involved in the development and management of Michigan’s trail system. They are the Michigan Department of Transportation (MDOT), the Michigan Department of Natural Resources (DNR), and the Michigan Department of Agriculture and Rural Development (MDARD). There are also a number of state advisory committees and boards and councils that are active in helping to complement agency activity. One of Michigan’s legacies in terms of governmental action has been consistent governmental outreach to citizens around the state to serve on advisory boards, councils, and commissions to provide direct citizen input into the actions of state government.

Michigan Department of Natural Resources

Of the three agencies identified above, the Michigan Department of Natural Resources (DNR) plays the most significant role in trail management in Michigan. It has handled the management and protection of Michigan’s natural resources since its origination in 1921 as the Michigan Department of Conservation (Michiganology n.d.). The mission of the DNR is the “commitment to the conservation, protection, management, use and enjoyment of the states, natural and cultural resources for current and future generations” (DNR n.d.a).

Parks and Recreation Division

Housed within the DNR is the Parks and Recreation Division (PRD). In 1993, the parks and boating programs of the DNR were merged to form this recreation-based division. The mission of the PRD is “to acquire, protect, and preserve the natural and cultural features of Michigan’s unique resources, and to provide access to land- and water-based, public recreation and educational opportunities” (DNR 2023). The PRD currently manages more than 13,400 miles of state-designated trails and pathways (DNR n.d.d).

The PRD Trails Section focuses primarily on the acquisition, development and management of trails located on state-managed land. It plays an important role in planning for multiple uses on trails for statewide recreational needs. The Trails Section was initially created in the Forest Management Division and then moved to the PRD as part of an agency reorganization. It currently has about 20 full-time employees, including trail coordinators and trail specialists, property analysts, grant coordinators, a real estate specialist, trail engineers, and a marketing and communications specialist.

In 2021, the PRD published the DNR 2022-2032 Trails Plan, which provides the framework for the DNR’s management of state-designated trails through 2032. The plan outlines four key goals (DNR 2021):

1. Manage Michigan’s state-designated trail system to sustainably maintain and improve existing conditions while supporting the DNR’s long-term natural and cultural resource management goals.
2. Develop and refine funding structures to ensure state-designated trails provide quality recreation and transportation experiences.
3. Maintain and improve strong relationships and partnerships with the public, stakeholders, and other governmental agencies.
4. Promote Michigan’s diverse trail opportunities to residents and visitors, accurately depicting experiences found throughout the state.

Michigan Trails Advisory Council

Another important governmental organization that was created to help facilitate trail management in Michigan is the Michigan Trails Advisory Council (MTAC). This council is housed within the DNR and was created to advise both the DNR and the governor’s office on trail issues and provides an important conduit for resident engagement. The council consists of gubernatorially-appointed citizens representing all the major trail uses in Michigan. The MTAC meets quarterly to take public comment and makes recommendations to help fine-tune the state’s motorized and nonmotorized trail system (DNR n.d.c). There are four sub-committees that exist within the council, and they are:

• The Equine Trails Subcommittee (ETS)
• The Snowmobile Advisory Workgroup (SAW)
• The ORV Advisory Workgroup (ORVAW)
• The Nonmotorized Advisory Workgroup (NAW)

DNR Grant Programs

The DNR administers a number of grant programs that provide financial assistance to communities and organizations to develop, improve, and maintain recreation facilities and infrastructure (including trails) (DNR n.d.b). Two of those grant programs (the Off-Road Vehicle Trail Improvement Program and the Snowmobile Trail Improvement Program) are specifically intended to fund trail development and maintenance. The DNR grant programs play a significant role in trail funding in Michigan and are discussed in greater detail in other sections of this coursebook.

Michigan Department of Transportation

Another partner in Michigan’s trail agency activity is the Michigan Department of Transportation (MDOT). The mission of MDOT is to “serve and connect people, communities, and the economy through transportation” (MDOT n.d.a).  MDOT’s primary role is to maintain the state trunkline highway system, which includes the interstate freeway system and all the highways and business routes of the state. This department manages all aspects of transportation, which includes both motorized and nonmotorized modes of transportation.

MDOT is incentivized to provide state nonmotorized transportation facilities by the federal Intermodal Surface, Transportation Efficiency Act (ISTEA) which promotes trails, pathways, and pedestrian walkways (USDOT 1993). The ISTEA is one of the principal federal laws through which funding is provided for trail development throughout the United States. To help gauge transportation needs throughout the state, MDOT hosts nonmotorized committees in each region of Michigan. This regional planning approach works to ensure that all planning for projects and development is done in accordance with the Michigan “Complete Streets” program.

Complete Streets

The Complete Streets program is a coordinated planning process to ensure that streets are designed and operated to provide safe use and support mobility for all types of users, including people of all ages and abilities, regardless of whether they are traveling as drivers, pedestrians, bicyclists, or in public transportation vehicles. Public Act 135 of 2010 defines “complete streets” as “roadways planned, designed, and built to provide appropriate access to all legal users in a manner that promotes safe and efficient movement of people and goods whether by car, truck, transit, assistive devise, foot, or bicycle” (MCL 247.660p Section 10p [a]).^[1] Complete streets projects often result in new facilities for non-motorized users, which may or may not be “separated pathways” (i.e., trails) (MDOT n.d.b). The Complete Streets Advisory Council, which was dissolved in 2015, provided education and advice to all agencies at the state and local level for the development, implementation, and coordination of complete street policies (Schulz 2015).

MDOT Grant Programs

MDOT administers two federal funding programs for competitive non-motorized facilities and projects to support the safety and mobility of people traveling on foot or by bicycle. These two programs are the Transportation Alternatives Program (TAP) and the Safe Routes to School (SRTS) program. Although MDOT plays an important role in supporting trail projects throughout the state, it frequently looks to the DNR to take the lead in broader statewide planning for trail development and trail policy.

Transportation Alternatives Program

The Transportation Alternatives Program (TAP) is a competitive grant program that uses federal transportation funds designated by Congress for “specific activities that enhance intermodal transportation system and provide safe alternative transportation options” (MDOT n.d.c). This program is focused on funding projects that provide transportation alternatives, including pedestrian and bicycle facilities, recreational trail projects, and the SRTS program. There were 41.4 TAP-funded miles in Michigan in 2023 ($24.5 million in funding). Examples of TAP-funded projects include the Pere Marquette Rail Trail and the Detroit Riverwalk—Milliken State Park projects (MDOT n.d.c).

Safe Routes to School

The Safe Routes to School (SRTS) program is a statewide transportation planning program that was created in 2005 under the federal Safe, Accountable, Flexible Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU). The SRTS program has three distinct purposes (Michigan Fitness Foundation 2021):

• To enable and encourage all children to walk and bike to school,
• To make bicycling and walking to school safer and more appealing, and
• To facilitate the planning, development, and implementation of activities that will improve student health and safety, while also reducing traffic, fuel consumption, and air pollution near schools.

Approximately $3 million in federal funding is allocated for Michigan SRTS projects every year (Armstrong n.d.).

Michigan Department of Agriculture and Rural Development

A third state agency engaged in trail development in Michigan is the Michigan Department of Agriculture and Rural Development (MDARD). This department was created in 1921 as the Michigan Department of Agriculture to enforce state laws regarding agricultural production and distribution. MDARD’s mission is to “assure the food safety, agricultural, environmental, and economic interests of the people of Michigan are met through service, partnership, and collaboration” (MDARD n.d.a). It plays an important role in helping promote trails within the farming sector by encouraging a successful interface between trail use and farm activities.

MDARD awards Rural Development Fund grants designed to promote the sustainability of land-based industries and support infrastructure that benefits rural communities, which can include trail and greenway development (MDARD n.d.b). Recent examples of rural development grant awards that supported trails include a grant for $100,000 which provided funding for maintenance equipment for the Iron Ore Heritage Trail and $100,000 grant to fund connections between the River Trails, LLC Trail System and the Pilgrim River Trail. Both grants were awarded in 2023 (MDARD n.d.c).

Local Units of Government and Regional Planning Commissions

Local units of government are governmental bodies that are responsible for a broad range of services over a defined political jurisdiction—either county, city, township, or village. One of the most important services they provide for trail development is land use planning, which is typically done through a planning commission. Planning commissions are governmental bodies that work within local units of government to provide guidance and make decisions regarding land use planning and development. A few examples of local units of government and planning commissions in Michigan that are active in trail building are Oakland County and its planning commission, the City of South Haven, and the Genessee County Metropolitan Planning Commission.

Oakland County

One local unit of government that is deserving of particular focus for its success in developing a sustainable trail system is Oakland County. The county and its planning commission have been actively involved in planning and developing non-motorized trails and pathways for over 40 years. The Oakland County Trails Master Plan provides a framework for creating a connected system of greenways and trails throughout Oakland County and has been a roadmap for an expansive trail development in this county (Oakland County Trails Advisory Council 2008). The Oakland County Parks System includes nearly 80 miles of trails that are available for year-round use with additional trail mileage in the planning phase (Oakland County n.d.). Much of the work in Oakland County is guided by the Oakland County Trails Advisory Council and county’s Trail Network Coordinator.

City of South Haven

An example of a city that has demonstrated success in trail building is the city of South Haven. South Haven planning officials have prioritized trail and greenways development for a number of years as residents within the city have consistently supported trail development. The city’s Pedestrian, Bicycle and Paddle Plan provides a framework to “enhance the overall pedestrian, bicycling and paddling experience, and to encourage healthy lifestyles benefiting from non-motorized transportation” (City of South Haven 2009). South Haven was one of the first cities to be designated as a Pure Michigan Trail Town and has over 48 miles of hiking and biking trails along with 91 miles of water trails and 11 miles of horseback riding trails (South Haven VanBuren County Convention and Visitors Bureau n.d.).

Genesee County Metropolitan Planning Commission

The Genesee County Metropolitan Planning Commission functions as support to the Genesee County Metropolitan Alliance, which is the planning organization for the Flint and Genesee County area. This commission consists of 11 individuals and has been largely responsible for the development of the Genesee County Regional Non-Motorized Plan that provides a framework for creating an interconnected system of trailways throughout Genesee County (Genesee County Metropolitan Planning Commission 2014 and n.d.). There are over 81 miles of non-motorized pathways in Genesee County (Genesee County Metropolitan Planning Commission 2014).

Nonprofit Organizations

Michigan is fortunate to have a large number of trail and greenway-specific nonprofit organizations, whose focus has been to partner with federal, state, and local agencies in the development and maintenance of both motorized and non-motorized trails. Examples of significant nonprofit organizations that are active in Michigan are American Trails, the Michigan Mountain Biking Association (MMBA), Michigan Trail Riders Association (MTRA), Michigan State University Sea Grant program, Paddle Antrim, the Top of Michigan Trails Council, and the West Michigan Trails and Greenways Coalition. Some of these key organizations are highlighted below.

Michigan Trails and Greenways Alliance

One of the most successful statewide organizations is the Michigan Trails and Greenways Alliance (MTGA), which was founded in 1986 as the Michigan Chapter of the national Rails To Trails Conservancy (MTGA n.d.a). MTGA’s mission is to be “the statewide voice for non-motorized trail users, helping people build, connect and promote trails for healthier and more prosperous Michigan” (MTGA n.d.b). The organization advocates for, promotes, and enables trail work all over Michigan with a focus on maintaining Michigan’s national leadership role in both land and water trails.

North Country Trail Association

A larger multi-state regional organization is the North Country Trail Association (NCTA), whose trail assets cover about 1,150 miles in Michigan and includes trails in several other neighboring states (NCTA n.d.). The mission of the NCTA is “to develop, maintain, protect and promote the North Country National Scenic Trail as the premier hiking path across the northern tier of the United States through a trail-wide coalition of volunteers and partners” (NCTA 2022). The NCTA frequently partners with the National Park Service and the United States Forest Service to unite individuals, groups, corporate sponsors, and others to maintain the North Country Trail.

Traverse Area Recreation and Transportation Trails, Inc.

Another regional organization is the Traverse Area Recreation and Transportation Trails, Inc. (TART). TART was formed in 1990 when four individual trail groups in the Traverse City area united to “create a stronger force for recreation and alternative transportation in northwest Michigan” (TART n.d.). TART’s mission is to “provide and promote a trail network that enriches people and communities throughout the greater Traverse region” (TART n.d.). The organization’s work includes negotiating easements, building and maintaining trails, hosting annual events, and advocating for active living and outdoor recreation.

Friends Groups

Complementing the work of these agencies and nonprofit organizations are numerous “trail friends” groups that are active all over Michigan. “Friends groups” are groups of like-minded people who come together to improve the appearance, facilities, conservation, and safety of a trail, park or recreation area. These groups often develop into nonprofit organizations and help in provide fundraising, recruit volunteers, lead restoration projects, and provide educational programs for the public. Some of the more active and successful friends group organizations are the Friends of the Kal-Haven Trail, the Friends of the Lakelands State Park Trail (now the Mike Levine State Park), and the Friends of the Betsie Valley Trail.

Conclusion

With all these organizations active in Michigan helping to promote and build trails, cooperation and coordination of these resources is often the key to successful trail work. Organizations working together can tackle issues and projects that are frequently too large or complex for a single organization to handle. There are many benefits of cooperation, such as sharing resources, fostering the exchange of ideas, enabling organizations to operate more efficiently, building support for projects, and minimizing conflicts among user groups. Michigan is fortunate to have these organizational resources available. Continued cooperation and collaboration will ultimately lead to more sustainable trail projects.

References

Armstrong, Bryan. n.d. “Michigan Department of Transportation Safe Routes to School (SRTS) Program.” Portland-Michigan.org. Accessed March 24, 2024. https://www.portland-michigan.org/DocumentCenter/View/2939/SRTS-Program-Overview

City of South Haven. February 16, 2009. City of South Haven, MI Pedestrian, Bicycle & Paddle Plan. South Haven: City of South Haven. Accessed March 24, 2024. https://cms3.revize.com/revize/southhavenmi/Ped-Bicycle-Paddle-Plan%2002-16-2009.pdf

Genesee County Metropolitan Planning Commission. 2014. Genesee County Regional Non-Motorized Plan. Flint: Genesee County Metropolitan Planning Alliance. Accessed March 24, 2024. https://gcmpc.org/wp-content/uploads/2015/01/2014-Genesee-County-Regional-Non-Motorized-Tech-Report_January20151.pdf

———. n.d. “Genessee County Metropolitan Planning Commission.” Genesee County Michigan. Accessed March 24, 2024. https://www.geneseecountymi.gov/government/board_of_commissioners/genesee_county_metropolitan_planning_commission.php

Michigan Department of Agriculture and Rural Development (MDARD). n.d.a “MDARD’s Role, Mission, Vision, Key Goals, and Scorecards.” Michigan.gov. Accessed March 24, 2024. https://www.michigan.gov/mdard/about/overview/mdards-role-mission-vision-key-goals-and-scorecards

———. n.d.b. “Rural Development Fund Grants.” Michigan.gov. Accessed March 24, 2024. https://www.michigan.gov/mdard/business-development/grantfund/rural-development-fund-grants

———. n.d.c. “2023 Rural Development Grant Recipients.” Michigan.gov. Accessed March 24, 2024. https://www.michigan.gov/mdard/-/media/Project/Websites/mdard/documents/business-development/grants/ruraldev/2023-Rural-Development-Fund-Grant-Awardees-List.pdf?rev=a660ecaff1a04ceb9aa2898bc64f4cf8&hash=72805C9987BFCDB16A5495428D684721

Michigan Department of Natural Resources (DNR). November 30, 2021. Michigan Department of Natural Resources Trails Plan 2022-2032. Lansing: DNR. Accessed March 22, 2024. https://www2.dnr.state.mi.us/Publications/PDFS/Trails/DNR_TrailsPlan_2022-32.pdf

———. 2023. Parks and Recreation Division 2023-2027 Strategic Plan. Lansing: DNR. Accessed March 22, 2024. https://www.michigan.gov/dnr/-/media/Project/Websites/dnr/Documents/PRD/parks/PRDStrategicPlan2023-2027.pdf?rev=0e9855b2e7b54744b0dbd08abf87ed62&hash=0550EEEE8E458FDA0A788E1745A9FCE4

———. n.d.a. “Mission, vision and values.” Michigan.gov. Accessed March 22, 2024. https://www.michigan.gov/dnr/about/mission

———. n.d.b. “Recreation Grants.” Michigan.gov. Accessed May 14, 2024. https://www.michigan.gov/dnr/buy-and-apply/grants/rec

———. n.d.c. “Trails Advisory Council.” Michigan.gov. Accessed March 22, 2024. https://www.michigan.gov/dnr/about/boards/mtac

———. n.d.d. “Trails system.” Michigan.gov. Accessed March 24, 2024. https://www.michigan.gov/dnr/managing-resources/prd/trails

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———. n.d.b. “Complete Streets.” Michigan.gov. Accessed March 24, 2024. https://www.michigan.gov/mdot/about/policies/complete-streets

———. n.d.c. “Transportation Alternatives Program.” Michigan.gov. Accessed March 24, 2024. https://www.michigan.gov/mdot/programs/grant-programs/transportation-alternatives

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———. n.d.b. “Who We Are.” MTGA. Accessed March 24, 2024. https://michigantrails.org/about-2/

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———. February 15, 2024. “Frequently Asked Questions.” Nps.gov. Accessed March 22, 2024. https://www.nps.gov/aboutus/faqs.htm

———. n.d. “Michigan.” Nps.gov. Accessed March 22, 2024. https://www.nps.gov/state/mi/index.htm

North Country Trail Association (NCTA). 2022. North Country Trail Association 2022 Annual Report. Lowell: NCTA. Accessed March 24, 2024. https://northcountrytrail.org/files/transparency/2022%20NCTA%20Annual%20Report.pdf

———. n.d. “Michigan.” North Country Trail Association. Accessed March 24, 2024. https://northcountrytrail.org/the-trail/michigan/

Oakland County. n.d. “Trails.” Oakgov.com. Accessed March 24, 2024. https://www.oakgov.com/community/oakland-county-parks/parks-trails/trails

Oakland County Trails Advisory Council. 2008. Oakland County Trails Master Plan. Waterford Township: Oakland County Parks and Recreation. Accessed March 24, 2024. https://greenwaycollab.com/Projects/SEMCOG_NoMo_Facilities_Inventory/Documents/Oakland/Plans/oakcotrailsmp.pdf

Schulz, Suzanne. January 29, 2015. “Complete Streets Advisory Council Sunset Letter.” Michigan.gov. Accessed March 24, 2024. https://www.michigan.gov/mdot/-/media/Project/Websites/MDOT/About-Us/Policies/Complete-Streets/Sunset-Letter.pdf?rev=e7bbc74d752545729950d48bb5f00a3b&hash=B4444A38EBB29AB84084837D6879B969

South Haven VanBuren County Convention and Visitors Bureau. n.d. “Pure Michigan Trails Town.” South Haven on Lake Michigan. Accessed March 24, 2024. https://www.southhaven.org/things-to-do/outdoors/hiking-biking-trails/

Traverse Area Recreation and Transportation Trails, Inc. (TART). n.d. “About.” TART Trails. Accessed March 24, 2024. https://traversetrails.org/about/

United States Department of Transportation (USDOT). 1993. A Summary: Intermodal Surface Transportation Efficiency Act of 1991. Washington, DC: USDOT. Accessed March 23, 2024. https://afdc.energy.gov/files/pdfs/2457.pdf

United States Forest Service. n.d.a. “Agency Organization.” Fs.usda.gov. Accessed March 22, 2024. https://www.fs.usda.gov/about-agency/organization

———. n.d.b. “Meet the Forest Service.” fs.usda.gov. Accessed March 22, 2024. https://www.fs.usda.gov/about-agency/meet-forest-service

———. n.d.c. “Volunteers.” Fs.usda.gov. Accessed March 22, 2024. https://www.fs.usda.gov/working-with-us/volunteers