The Lake Superior Water Trail spans international boundaries, one Canadian province, three U.S. states (MN, WI, MI), and fifteen Indigenous Nations. But its complex governance and lack of a unified management structure on the U.S. side result in fragmented administration and inconsistent stewardship.
Cami Armendariz, Master’s student and the Center for Water Policy’s Water Policy and Science Communication Fellow (2024-2026) in the UW-Milwaukee School of Freshwater Sciences water policy track, conducted thesis research to investigate a sample of governance entities, their stakeholder roles, and community engagement strategies to characterize the overarching governance models currently shaping the Trail’s development across Minnesota, Wisconsin, and Michigan.
By applying theoretical thematic coding across four pre-established conceptual frameworks, the analysis identified two governance models in action. These include the “Public–Nonprofit” Combination Model in Minnesota—where government agencies provide oversight and infrastructure while nonprofits lead outreach and volunteer coordination—and the “Traditional–Community” Model in Wisconsin and Michigan, which is characterized by decentralized decision-making and informal local consensus, often without formal regulatory designation.
Armendariz’s thesis study recommends establishing a “Lake Superior Water Trail Collaborative” with a primary role of cross-jurisdictional coordination. Ultimately, future planning must evolve beyond physical implementation to prioritize mutual benefit for trail communities, explicitly defining the Trail’s value to local economies, cultures, and environments. This will position the Lake Superior Water Trail as a cornerstone of a broader Great Lakes Coastal Trail Network.
This thesis was supported by Lynde B. Uihlein and the Brico Fund through the Center for Water Policy’s Water Policy and Science Communication Fellowship. Their generosity made this research possible, advancing insights into the governance and cross-jurisdictional management of water trails to support stronger community engagement and equitable access along the Lake Superior Water Trail and beyond. Thesis committee members included Melissa Scanlan, JD, Deidre Peroff, PhD, and Amber Wichowsky, PhD, who provided guidance in shaping this work and strengthening the qualitative research.
Additionally, the Brookby Foundation Scholarship in Water Science Literacy funded a supplementary project further developing the Lake Superior Water Trail for Wisconsin’s shoreline. Through this project, Armendariz evaluated 325 miles of Wisconsin shoreline to standardize information on community assets, including ecological resources, cultural sites, and trail access points. These findings were synthesized into an accessible development framework and a portfolio of 12 signage examples.
Read the thesis: Coordinating within Complexity: Governance Challenges and Opportunities for the Lake Superior Water Trail
Watch the thesis presentation: Lake Superior Water Trail Thesis
Citation:
Cami Armendariz, Coordinating within Complexity: Governance Challenges and Opportunities for the Lake Superior Water Trail, Master’s Thesis, University of Wisconsin – Milwaukee Publications (2026).