I had to use SPLITTER r428 with this command:
java -Xmx1024m -Xms1024m -ea -jar \MKGMAP\splitter-r428\splitter.jar --max-nodes=1400000 --mapid="12390000" --geonames-file=\MKGMAP\cities15000.zip --description=MI-greg --max-areas="255" --no-trim --status-freq="600" michigan-latest.osm.pbf
Since I could not load the entire Michigan 96MB file into JOSM r9329. The resulting file, 12390006.osm.pbf, is 10.8MB and I imported it into JOSM and copied a NODES tags to an underlying POLYGON and deleted the NODE and tried to upload to the OSM server and got this error message:
"Uploading failed because the server has a newer version of one of your nodes, ways, or relations. Click Synchronize entire dataset to synchronize the entire local dataset with the server"