NAVAJO GENERATING STATION 

AND KAYENTA MINE: 

An Economic Impact Study

Dr. Matt Croucher, Dr. Anthony Evans and Dr. Tim James 

L William Seidman Research Institute, 

W. P. Carey School of Business, 

Arizona State University 

February 2, 2012 
i 

L. William Seidman Research Institute 

The L. William Seidman Research Institute serves as a link between the local, national, and international 

business communities and the W. P. Carey School of Business at Arizona State University (ASU). 

First established in 1985 to serve as a center for applied business research alongside a consultancy 

resource for the Arizona business community, Seidman collects, analyzes and disseminates information 

about local economies, benchmarks industry practices, and identifies emerging business research issues

that affect productivity and competitiveness. 

Using tools that support sophisticated statistical modeling and planning, supplemented by an extensive

understanding of the local, state and national economies, Seidman today offers a host of economic 

research and consulting services, including economic impact analyses, economic forecasting, general 

survey research, attitudinal and qualitative studies, and strategic analyses of economic development 

opportunities. 

Working on behalf of government agencies, regulatory bodies, public or privately-owned firms, academic

institutions, and non-profit organizations, Seidman specializes in studies at the city, county or state-wide 

level. Recent and current clients include:

• Arizona Commerce Authority (ACA) 

• Arizona Corporation Commission (ACC) 

• Arizona Department of Mines and Mineral 

Resources 

• Arizona Hospital and Healthcare Association 

• Arizona Investment Council (AIC) 

• Arizona Public Service Corporation (APS) 

• Arizona School Boards Association 

• Arizona Town Hall 

• The Boeing Company 

• Executive Budget Office of the State of 

Arizona 

• Freeport McMoran 

• Goodwill Industries 

• Intel Corporation 

• Raytheon 

• Salt River Project (SRP) 

• Science Foundation Arizona (SFAZ) 

• Turf Paradise Valley METRO Light Rail 

• Waste Management Inc
ii 

Executive Summary 

• This report, prepared for the Salt River Project (SRP) and the Navajo Nation, examines the direct, 

indirect and induced economic impact of Navajo Generating Station (NGS) and Kayenta Mine, 

individually and in aggregate, for the period 2011-2044, at county and state level. 

• NGS currently employs 538 regular workers, of which 83% are Navajo in origin. 

• Kayenta Mine currently employs 320 union-represented and 110 non-represented company 

workers. Approximately 93% of the union workers are Native American, primarily drawn from 

the Navajo Nation, although no specific number is available. An estimated 20-40% of company 

employees are also Native American but no specific estimate of Navajo Nation employees is 

available. 

• During the period 2011-2044, the operation of both facilities accounts for approximately 

112,720 full-time or equivalent jobs years throughout Arizona, including 32,912 direct job years. 

• Retail trade (11.9%), health care (11.5%) and construction (10.4%) also enjoy significant indirect 

job creation. 

Overview of NGS and Kayenta Mine’s Cumulative State-Wide Total Economic Impact 

Cumulative Impact 

2011-2044 

Total Private Non-Farm Employment 112,720 full-time or equivalent job years 

Gross State Product $20.46 billion (2011$) 

Real Disposable Personal Income $11.16 billion (2011$) 

 Source: Authors’ Calculations 

• Real GSP for the Generating Station and Mine combined during 2011-2044 is higher relative to 

the baseline by almost $20.5 billion (2011$) throughout the state. 

• Real disposable income during 2011-2044 is higher relative to the baseline by over $11 billion 

(2011$) for the Generating Station and Mine combined throughout the state. 

• The principal beneficiary of the economic impacts is the host county for each facility. 

 
iii 

Cumulative Adjusted State Revenues for NGS and Kayenta Mine, 2011-2044 

Category 

Cumulative Impact 

2011-2044 

(Millions 2011$)1

Income Tax 203.72 

General Sales Tax 276.25 

Selective Sales Tax 80.13 

Corporate Income Tax 119.47 

Total 679.58 

 Source: Authors’ Calculations

• Both facilities cumulatively account for over $679 million (2011$) in adjusted state tax revenues 

throughout the period, of which 40.7% is general sales tax, 30% is income tax, 17.6% corporate 

income tax, and 11.8% selective sales tax. 

• Coconino County benefits from 39.7% of the 2011-2044 adjusted state tax revenues, equating to 

$269.5 million (2011$). 

• Navajo County benefits from 34.6% of the 2011-2044 adjusted state tax revenues, equating to 

$228.7 million (2011$). 

• The continued operation of NGS and Kayenta Mine therefore exerts significant positive 

economic impact for the host counties and Arizona as a whole. 

• Throughout the period, NGS and Kayenta Mine will also make a number of direct payments to 

the Navajo Nation. 

• No additional quantification of the economic impact of NGS and Kayenta Mine exclusively for 

the Navajo Nation is possible using the current REMI model. 

• Additional research is recommended, consisting of a survey of Navajo expenditure patterns and 

the development of a bespoke Navajo-specific IMPLAN impact analysis for 2011, to arrive at a 

robust estimate of the economic impacts of NGS and Kayenta Mine exclusively for the Navajo 

Nation. 

 

1

 General State Sales Tax includes authors’ estimates of revenue from Prop 100 temporary tax. 
iv 

Table of Contents 

Executive Summary ii 

1. Introduction 1 

2. Report Method and Scenario Examined 3 

3. Simulation Results 4 

3.1 Navajo Generating Station 4 

3.2 Kayenta Mine 12 

3.3 Cumulative Economic Impact of Navajo Generating Station and Kayenta Mine 19 

4. Direct Payments to the Navajo Nation 22 

5. Conclusions 23 

References 26 

Glossary 27 
v 

List of Tables 

Table 1: Overview of NGS’ Economic Impact, 2011-2044 5 

Table 2: NGS’ Direct and Indirect/Induced Job Years for Private Non-Farm Employment, 2011-2044 7 

Table 3: NGS’ Private Non-Farm Employment across Sectors, 2011-2044 9 

Table 4: NGS’ Cumulative Adjusted State Tax Revenues by County, 2011-2044 10 

Table 5: NGS’ Aggregate Adjusted State Tax Revenues for Arizona, 2011-2044 11 

Table 6: NGS’ Cumulative Adjusted State Revenues by Tax Type, 2011-2044 11 

Table 7: Overview of Kayenta Mine’s Economic Impact, 2011-2044 13 

Table 8: Kayenta Mine’s Direct and Indirect/Induced Job Years for Private Non-Farm Employment 15 

Table 9: Kayenta Mine’s Private Non-Farm Employment across Sectors, 2011-2044 16 

Table 10: Kayenta Mine’s Cumulative Adjusted State Tax Revenues by County, 2011-2044 17 

Table 11: Kayenta Mine’s Aggregate Adjusted State Tax Revenues for Arizona, 2011-2044 18 

Table 12: Kayenta Mine’s Cumulative Adjusted State Revenues by Tax, 2011-2044 18 

Table 13: NGS and Kayenta Mine’s Total Economic Impact, 2011-2044 19 

Table 14: NGS and Kayenta Mine’s Total Private Non-Farm Employment across Sectors, 2011-2044 20 

Table 15: NGS and Kayenta Mine’s Total Adjusted State Tax Revenues by Tax Type, 2011-2044 21 

Table 16: Summary of the Statewide Total Economic Impact of NGS and Kayenta Mine, 2011-2044 23 

Table 17: Percentage Impact of Key Macro-Economic Variables by Facility and Host County 24 

Table 18: NGS and Kayenta Mine’s Cumulative Adjusted State Tax Revenues by County, 2011-2044 24 
Page | 1 

1. Introduction 

Navajo Generating Station (NGS) is a coal-fired power plant serving electric customers in Arizona, 

Nevada and California, and energy to pump water through the Central Arizona Project. Located on the 

Navajo Indian Reservation near Page, AZ., the station’s first unit began producing electricity in 1974, and 

currently has a capacity of 2,250MW from three 750MW units. NGS annually uses 8 million tons of low 

sulfur bituminous coal from Peabody Western Coal Company's Kayenta Mine, 78 miles to the southeast, 

which is hauled to the station by the Black Mesa and Lake Powell Railroad. 

To minimize its environmental impact, NGS has invested over $420 million in sulfur dioxide (SO2) 

scrubbers, and a further $45 million to reduce nitrous oxide (NOX) emissions. NGS also implements a 

stringent waste minimization program. However, the power plant is currently facing a number of 

difficult issues that may threaten its future viability. These include: 

• A potential ruling from the Environmental Protection Agency to install additional emission control 

technology at the plant costing in excess of $1.1 billion. 

• The expiration of a site lease and rights-of-way for the NGS plant, railroad, transmission and water 

lines in 2019. 

• The expiration of the Coal Supply Agreement with Peabody Energy in 2019. 

NGS’ management and SRP are currently working to avoid a facility shutdown, which could become a 

reality if the EPA imposes the $1.1 billion emission controls before the lease and rights-of-way can be 

renewed with the Navajo Nation. To assist with the negotiations, SRP and the Navajo Nation has 

therefore asked The Seidman Research Institute, W. P. Carey School of Business at ASU, to: 

• Quantify the direct economic impacts and indirect effects of NGS and the Kayenta Mine individually, 

at both a county and state level. 

• Compile additional information concerning the state and local tax revenues associated with the 

direct, indirect and induced economic effects of both operations. 

• Calculate a cumulative figure for the total contribution of NGS and Kayenta Mine to the Arizona 

economy. 
Page | 2 

Direct impacts are generally relatively easy to understand and calculate. For example, whenever a 

business decides to locate in Arizona, there is a resulting increase in capital expenditures as new 

buildings are constructed and/or old buildings are remodeled. Also, industry specific expenditures may 

be required to ensure the facility is fit-for-purpose. Coupled with this initial capital investment, there 

are on-going jobs created once the business begins operation.2 The direct economic impacts of NGS and 

Kayenta Mine in Arizona therefore include employment, income payments, the purchase of goods and 

services from local businesses, and tax payments to state and local governments. 

Indirect or induced impacts are less obvious but no less significant. For example, the income that an

NGS employee receives and then spends in the local economy will in turn create revenues and/or 

income for a variety of different businesses. Additional indirect impacts arise when firms that supply 

goods and services to NGS or Kayenta Mine place upstream demands on other producers, or increase 

their number of employees as the generating station or mine’s purchasing increases. Whenever local 

governments spend tax revenues, this too has an indirect impact. 

These latter rounds of expenditures are not self-perpetuating. Instead, through time, the rounds of 

expenditures become smaller as more of the income/expenditure “leaks” out of the local economy.3

 

The cumulative impacts of these rounds of expenditure or “ripple effects” are known as the multiplier 

effect within economics. Importantly, there is no one “magic” multiplier number for every conceivable

scenario. Due to the inter-linked nature of the Arizona economy both within itself and its links to the 

rest of the US (and world), the eventual ripple effects depend on a variety of factors including the size of 

the direct impact, its location in terms of county and economic sector, and its duration. A thorough 

analysis of the total impact of a business or industry upon the Arizonan economy therefore requires a 

sum of the direct and indirect/induced impacts. 

Section 2 describes the economic impact method adopted for this analysis. Economic impact results 

specific to NGS and Kayenta Mine are presented in Section 3, along with a cumulative assessment of 

their total economic impact at a county and state level. Section 4 discusses direct payments to the 

Navajo Nation. Conclusions and recommendations for future research are offered in Section 5. 

 

2

 There are also on-going (operations) capital expenditures throughout the lifetime of the business. 

3

 For example, in the form of savings, payments on goods and services produced outside of the state etc.
Page | 3 

2. Report Method 

This report uses an Arizona-specific version of the REMI regional forecasting model to produce numeric

estimates of the impact of a business upon the Arizona economy. REMI models are sometimes referred 

to as “econometric models” due to their underlying equations and statistical response estimations. 

However, REMI also integrates three additional modeling approaches, incorporating the strengths of all

four methodologies while overcoming their limitations, to comprehensively answer “what if ...?” 

questions about the economy. These are Input-Output, General Equilibrium and Economic Geography. 

The REMI model contains detailed industries, capturing the industry structure of a particular region and 

transactions between industries. However, unlike most other regional economic impact models, REMI is 

also dynamic, producing integrated, multi-year forecasts and feedback among its economic and 

demographic variables. This ability to track variations within the economic impact of a business enables 

that firm or industry to change their behavior in response to changing economic conditions. 

The spatial dimension of the economy is addressed by productivity and competitiveness benefits, 

through the concentration or agglomeration of economic activity in cities and metropolitan areas, and 

the clustering of industries. 

REMI is also an open model in that it explicitly accounts for trade and migration flows in and out of the 

state, and between counties. The use of a county level model enables a more detailed disaggregation of 

results to occur, thereby estimating the economic impacts that “leak” into other counties in Arizona. 

Seidman’s operation of the REMI model has been developed to facilitate the simulation of policy 

changes, via a large set of modifiable policy variables. To simulate the impact of a policy change or

event, a change in one or more variables is entered into the model and a new forecast generated. The 

REMI model then automatically produces a detailed set of simulation results showing the differences in

the values of each economic variable between the control and the alternative forecast. 

A complete explanation of the model and discussion of the empirical estimation of the 

parameters/equations is found at www.remi.com.
Page | 4 

3. Simulation Results 

This section examines the direct economic impacts during 2011-2044 associated with the operations of 

Navajo Generating Station and Kayenta Mine, and any potential indirect impacts that may occur due to 

their increased economic activity. The following figures are provided for each operation: 

• Standard macroeconomic variables such as total employment, gross state product (GSP) and 

real disposable income. 

• A forecast for employment impacts and adjusted state revenue at a disaggregated level. 

The figures presented for each operation are always relative to a baseline forecast in which the facility 

does not exist or operate.4 The report period for this economic impact analysis is 2011-2044. This 

assumes a continuation of operations beyond the expiration of the current agreements. Results are 

presented at county level and for Arizona as a whole. All dollar amounts are measured in 2011 dollars

(2011$).5

The section concludes with a cumulative assessment of the total economic impact of the generating 

station and mine in their host counties and for Arizona as a whole. 

3.1 Najavo Generating Station (NGS) 

NGS is a coal-fired generating station, operated by SRP, serving electricity customers in Arizona, Nevada 

and California. The station also supplies energy to pump water through the Central Arizona Project. 

NGS currently has 538 regular employees, of which 147 are salaried staff, and 391 paid by the hour. 

These latter hourly employees include apprentices, office specialists, operations and maintenance staff, 

specialist skilled craftsmen and warehouse specialists. Navajos account for the greatest proportion of 

this workforce – 446 employees or 83%. Table 1 estimates NGS’ impact on selected standard macroeconomic variables. 

 

4

 For instance, if GSP is estimated to be x dollars higher than the baseline case, this does not mean it is x dollars 

higher than what GSP is today. It simply means that it is x dollars higher than what GSP is forecast to be in that 

given year if the new business had not located in Arizona. 

5

 The report refers to real, rather than nominal, values to allow for comparisons across years.
Table 1: Overview of NGS’ Economic Impact, 2011-2044

Total Private NonFarm Employment (Full-Time Job Years) 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203Arizona 1,617 1,750 1,810 1,830 1,823 1,799 1,774 1,750 1,726 1,651 1,643 1,665 1,69Coconino County 1,296 1,368 1,391 1,388 1,370 1,345 1,317 1,292 1,268 1,187 1,154 1,142 1,14Host County % of Total 80.1% 78.2% 76.8% 75.9% 75.2% 74.8% 74.3% 73.9% 73.5% 71.9% 70.3% 68.6% 67.2Gross State Product (Millions 2011$) 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203Arizona 234 254 266 276 283 289 295 299 304 329 360 397 43Coconino County 204 217 225 232 237 242 246 250 253 273 296 322 34Host County % of Total 87.0% 85.5% 84.6% 84.0% 83.8% 83.7% 83.6% 83.5% 83.4% 83.0% 82.1% 81.1% 79.9Real Disposable Personal Income (Millions 2011$) 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203Arizona 81 92 100 106 111 116 119 123 126 140 157 179 20Coconino County 63 69 75 79 82 84 86 88 90 98 107 119 13Host County % of Total 77.3% 75.7% 74.5% 73.8% 73.3% 72.9% 72.5% 71.9% 71.6% 70.2% 68.3% 66.5% 64.6State Revenue (Millions 2011$) 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203From activity across Arizona 

6.71 7.46 7.81 7.98 8.29 8.56 8.81 9.05 9.26 10.25 11.4 12.69 14.

From activity based in Coconino County 

5.35 5.79 5.93 5.96 6.13 6.25 6.38 6.48 6.57 7.04 7.58 8.22 8.9

Host County % of Total 79.7% 77.6% 75.9% 74.7% 73.9% 73.0% 72.4% 71.6% 71.0% 68.7% 66.5% 64.8% 63.1

Source: Authors’ Calculations 
Page | 6 

Table 1 estimates that Arizona-wide employment is approximately 1,617 higher relative to the baseline 

in 2011. Real GSP is higher relative to the baseline by approximately $234 million (2011$). Real 

disposable income is higher relative to the baseline by approximately $81 million (2011$) and state 

revenues higher by approximately $7 million (2011$). The main beneficiary of these positive economic 

impacts is Coconino County (ranging from 77% to 87% for the variables examined). 

In 2019, Arizona-wide employment is forecast to be approximately 1,726 higher relative to the baseline, 

of which 1,268 job years are located in Coconino County. Real GSP is higher relative to the state’s 

baseline by approximately $304 million (2011$). Real disposable income is higher relative to the state’s 

baseline by approximately $126 million (2011$) and state revenues higher by approximately $9.26 

million (2011$). Again, the vast majority of these positive economic impacts are forecast to occur within 

Coconino County (ranging from 71% to 83% for the variables examined). However, a slight increase in 

economic activity is also forecast to occur outside the host county.6

If an agreement is reached and production continues until 2044, in aggregate terms and for the report 

period 2011-2044, NGS accounts for 57,793 total private non-farm job years, 71.1% of which is based in

Coconino County. Total real GSP in the state is cumulatively higher by $12.16 billion (2011$). Total real 

disposable income is cumulatively higher by $5.35 billion (2011$), and total state revenues cumulatively 

higher by $383 million (2011$). 

Economic impact assessment reports usually disaggregate employment or job years into direct and 

indirect/induced jobs, and this is illustrated in Table 2.7 This suggests that Navajo Generating Station 

accounts for more than twice as many indirect/induced jobs for every person employed at NGS for the 

reporting period 2011-2044. 

 

6

 This is expected as some of the economic activity “ripples” into other counties. 

7

 It is a standard output in another economic impact program called IMPLAN.
Table 2: NGS’ Direct and Indirect/Induced Job Years for Private Non-Farm Employment, 2011-204

2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203

Direct Full-Time Job Years 

538 538 538 538 538 538 538 538 538 538 538 538 53

Indirect/Induced FullTime Job Years 1,079 1,212 1,272 1,292 1,285 1,261 1,236 1,212 1,188 1,113 1,105 1,127 1,16Indirect/Induced as a Percentage of Direct 

201% 225% 236% 240% 239% 234% 230% 225% 221% 207% 205% 209% 216

Source: Authors’ Calculations 
Page | 8 

Table 3 estimates non-farm private sector employment. This suggests that the biggest indirect 

beneficiaries of NGS from an employment perspective are the construction, retail trade, health care and 

administration/waste services sectors. The biggest direct beneficiary is obviously the utilities sector. 

Tables 4 to 6 forecast employment and state revenues at a more disaggregated level. 

Tables 4 and 5 show NGS to cumulatively generate approximately $383 million (2011$) in adjusted state 

revenues during the period 2011-2044. Coconino, as the host county, benefits the greatest (66.8%). 

However, Maricopa (16.7%) and Yavapai (11.1%) also receive a significant proportion of the adjusted 

state revenues generated. 

Table 6 provides a breakdown by tax revenue source for the period 2011-2044. The table excludes 

intergovernmental revenue, charges, insurance trust revenue, and other miscellaneous revenue, as 

these are of no relevance when examining the fiscal impact of NGS. Table 6 suggests that general sales 

tax cumulatively accounts for 34.5% of adjusted state revenues throughout the period, income tax 

31.5% and corporate income tax 11.68%. 

The continued operation of the Navajo Generating Station is therefore forecast to result in a significant 

increase in economic activity, both in Coconino County and the state of Arizona as a whole. 
Table 3: NGS’ Private Non-Farm Employment across Sectors, 2011-2044 (Full-Time Job Years) 

Sector 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 Forestry, Fishing, Related Activities, & Other 1.76 1.96 2.06 2.08 2.05 2 1.95 1.91 1.87 1.78 1.85 Mining 5.47 5.39 5.26 5.1 4.92 4.75 4.59 4.45 4.33 3.86 3.5 Utilities 539.39 541.74 541.74 541.67 541.54 541.4 541.27 541.14 541.01 540.55 540.27 Construction 190.02 256.16 287.75 298.54 296.02 286.29 273.48 259 244.78 186.16 154.54 Manufacturing 12.85 12.6 11.2 9.19 7 4.79 2.91 1.4 0.12 -2.76 -2.81 Wholesale Trade 25.96 27.58 28.08 27.88 27.27 26.48 25.7 24.99 24.21 21.22 19.19 Retail Trade 168.21 184.33 193.7 198.61 200.81 201.02 200.62 200.29 199.22 195.19 194.49 Transportation & Warehousing 14.87 15.41 15.27 14.77 14.01 13.14 12.51 11.95 11.45 9.9 9.52 Information 8.59 9.37 9.7 9.76 9.66 9.45 9.22 9 8.79 7.98 7.68 Finance & Insurance 69.08 70.01 68.48 65.73 62.29 58.44 55.11 52.14 49.36 40.12 35.45 Real Estate, Rental & Leasing 74.16 83.5 88.99 91.37 91.8 90.94 89.84 88.81 87.89 86.58 90.03 Professional & Technical Services 91.14 100.28 104.51 106.03 105.61 103.93 103 101.99 100.77 96.37 94.54 Management of Companies & Enterprises 2.99 3.2 3.21 3.14 2.98 2.79 2.7 2.61 2.53 2.33 2.33 Administrative & Waste 106.14 112.95 115.45 115.66 114.29 111.82 109.56 107.3 105.22 96.74 91.49 Educational Services 10.69 12.23 13.21 13.87 14.29 14.58 14.89 15.27 15.64 17.95 20.73 Health Care & Social Assistance 121.49 128.78 133.24 135.86 137.73 138.85 140.08 142.06 143.98 160 185.12 Arts, Entertainment, & Recreation 23.9 25.99 27.37 28.22 28.75 29.07 29.43 29.91 30.39 34.02 39.05 Accommodation & Food Services 65.16 69.49 71.47 72.24 72.11 71.56 70.37 69.82 69.12 69 70.16 Other Services, except Public Administration 85.04 88.85 90.19 90.24 89.26 87.72 86.79 86.26 85.51 84.09 85.78 Yearly Total 1,617 1,750 1,811 1,830 1,822 1,799 1,774 1,750 1,726 1,651 1,643 

Source: Authors’ Calculations
Table 4: NGS’ Cumulative Adjusted State Tax Revenues by County, 2011-2044

Region 

Cumulative Impact 

2011-2044 

(Millions 2011$) Percentage 

Apache County 1.18 0.3% Cochise County 0.31 0.1% Coconino County 255.8 66.8% Gila County 0.77 0.2% Graham County 0.18 0.05% Greenlee County 0.08 0.02% La Paz County 0.06 0.01% Maricopa County 64.07 16.7% Mohave County 2.04 0.5% Navajo County 6.11 1.6% Pima County 3.85 1% Pinal County 5.56 1.5% Santa Cruz County 0.16 0.04% Yavapai County 42.42 11.1% Yuma County 0.39 0.1% 

All Regions 382.96 100% 

 Source: Authors’ Calculations 
Table 5: NGS’ Aggregate Adjusted State Tax Revenues for Arizona, 2011-2044 

Region 

Year (Millions 2011$) 

2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 2039 

Arizona 6.71 7.46 7.81 7.98 8.29 8.56 8.81 9.05 9.26 10.25 11.4 12.69 14.2 

Source: Authors’ Calculations 

Table 6: NGS’ Adjusted State Tax Revenues by Tax Type, 2011-20448

Category 

Year (Millions 2011$) 

2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 2039 2044 

Income Tax 2.04 2.28 2.47 2.61 2.7 2.78 2.85 2.92 2.97 3.22 3.56 3.96 4.46 5.06 General Sales Tax 2.51 2.83 2.84 2.76 2.88 2.98 3.07 3.16 3.23 3.58 3.94 4.34 4.81 5.37 Selective Sales Tax 0.62 0.7 0.76 0.81 0.84 0.87 0.9 0.92 0.94 1.05 1.15 1.27 1.4 1.57 Corporate Income Tax 1.54 1.64 1.73 1.8 1.86 1.93 1.99 2.05 2.11 2.41 2.75 3.13 3.54 4.02 Total 6.71 7.46 7.81 7.98 8.29 8.56 8.81 9.05 9.26 10.3 11.4 12.7 14.2 16.0 

Source: Authors’ Calculations 8 General State Sales Tax includes authors’ estimates of revenue from Prop 100 temporary tax. 
Page | 12 

3.2 Kayenta Mine 

Kayenta Mine, located 10 miles southwest of Kayenta, in Navajo County, AZ., has been operated by 

Peabody Western Coal Company since 1973 through lease agreements with the Navajo Nation and Hopi 

Tribe. The 40,000-acre mine produces approximately 8 million tons of coal annually, which it ships by

rail to the Navajo Generating Station. 

Peabody currently employs 320 union-represented workers at Kayenta, plus 110 company workers. 

Approximately 93% of the union workers are Native American, primarily drawn from the Navajo Nation. 

SRP estimates that 20-40% of company employees are also Native American. 

Table 7 estimates Kayenta Mine’s impact on selected standard macro-economic variables. This suggests 

that Arizona-wide employment in 2011 is approximately 1,046 higher, relative to the baseline, due to 

the operation of the mine. Real GSP is higher relative to the state baseline by approximately $136 

million (2011$). Real disposable income is $49 million higher (2011$) and state revenues $4.3 million

(2011$) higher. Navajo County benefits the most from these positive economic impacts (greater than 

77% for each variable). 

In 2019, Arizona-wide employment is forecast to be approximately 1,382 higher relative to the baseline. 

Real GSP is $185 million (2011$) higher. Real disposable income is approximately $105 million (2011$)

higher, and state revenues $6.2 million (2011$) higher. Again, the vast majority of these positive 

economic impacts are forecast to occur within Navajo County (ranging from 74% to 79% of the variables 

examined). However, over the period of report, there is also a slight increase in economic activity 

occurring outside of the host county.9

If an agreement is reached and production continues until 2044, in aggregate terms and for the report 

period 2011-2044, Kayenta Mine accounts for 54,927 total private non-farm job years, 72.5% of which is

based in Navajo County. Total real GSP in the state is cumulatively higher by $8.3 billion (2011$). Total 

real disposable income is cumulatively higher by $5.8 billion (2011$), and total state revenues 

cumulatively higher by almost $297 million (2011$).

 

9

 This is expected as some of the economic activity “ripples” into other counties. 
Table 7: Overview of Kayenta Mine’s Economic Impact, 2011-2044 10

Total Private NonFarm Employment (Full-Time Job Years) 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203Arizona 1,046 1,148 1,215 1,261 1,295 1,319 1,340 1,361 1,382 1,493 1,633 1,796 1,95Navajo County 853 909 945 969 986 1,000 1,011 1,023 1,034 1,101 1,183 1,276 1,36Host County % of Total 81.5% 79.2% 77.8% 76.8% 76.1% 75.8% 75.4% 75.2% 74.8% 73.7% 72.4% 71.0% 69.9Gross State Product (Millions 2011$) 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203Arizona 136 146 155 161 167 172 176 180 185 210 242 282 32Navajo County 117 123 127 130 134 137 139 142 145 161 180 204 23Host County % of Total 86.0% 84.2% 81.9% 80.7% 80.2% 79.7% 79.0% 78.9% 78.4% 76.7% 74.4% 72.3% 70.7Real Disposable Personal Income (Millions 2011$) 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203Arizona 49 58 67 74 81 87 93 100 105 135 169 212 26Navajo County 38 44 50 55 60 65 69 74 78 100 123 154 19Host County % of Total 77.6% 75.9% 74.6% 74.3% 74.1% 74.7% 74.2% 74.0% 74.3% 74.1% 72.8% 72.6% 72.1State Revenue (Millions 2011$) 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203From activity across Arizona 

4.34 4.78 4.95 5.05 5.31 5.57 5.78 6.01 6.22 7.34 8.67 10.31 12.2

From activity based in Navajo County 

3.55 3.86 3.97 4.03 4.23 4.43 4.60 4.77 4.93 5.78 6.73 7.90 9.2

Host County % of Total 81.8% 80.7% 80.1% 79.8% 79.7% 79.6% 79.5% 79.4% 79.3% 78.7% 77.7% 76.6% 75.5

Source: Authors’ Calculations 10 Figures may not add up exactly due to rounding-up.
Page | 14 

Table 8 disaggregates employment or job years into direct and indirect/induced jobs. This table 

suggests that for every full-time or equivalent job created at Kayenta Mine between 2011 and 2044, an 

additional 2.75 full-time or equivalent jobs are generated in other industries. 

Table 9 estimates non-farm private sector employment. This suggests that the main indirect 

beneficiaries of Kayenta Mine in terms of employment are the retail trade, health care and construction 

sectors. The mining sector is obviously the main direct beneficiary. 

Tables 10 to 12 forecast employment and state revenues at a disaggregated level. 

Tables 10-11 show Kayenta Mine to generate $296.6 million in total, adjusted state revenues during the

period 2011-2044. Navajo, as the host county, benefits the greatest (77.1%). Maricopa (11.9%) and 

Coconino (4.6%) also receive a significant proportion of these adjusted state revenues. Two counties 

experience insignificant negative effects. These are Greenlee and Yuma. 

Table 12 provides a breakdown by tax revenue source for the period 2011-2044. The table excludes 

intergovernmental revenue, charges, insurance trust revenue, and other miscellaneous revenue, as 

these are of no relevance when examining the fiscal impact of Kayenta Mine. This suggests that general 

sales tax cumulatively accounts for 48.6% of adjusted state revenues throughout the period, income tax

28%, selective sales tax 14.1% and corporate income tax 9.3%. 

The continued operation of Kayenta Mine is therefore forecast to result in a relatively significant 

increase in economic activity in Navajo County and the state of Arizona as a whole. 
Table 8: Kayenta Mine’s Direct and Indirect/Induced Job Years for Private Non-Farm Employment, 201

2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 203

Direct Full-Time Job Years 

430 430 430 430 430 430 430 430 430 430 430 430 43

Indirect/Induced FullTime Job Years 616 718 785 832 865 889 910 931 952 1,063 1,203 1,366 1,52Indirect/Induced as a Percentage of Direct 

143% 167% 183% 193% 201% 207% 212% 217% 221% 247% 280% 318% 355

Source: Authors’ Calculations 
Table 9: Kayenta Mine’s Private Non-Farm Employment across Sectors, 2011-2044 (Full-Time Job Ye

Sector 2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 Forestry, Fishing, Related 0.56 0.60 0.58 0.53 0.47 0.39 0.33 0.27 0.23 0.12 0.17 Mining 408.16 406.04 404.31 402.92 401.77 400.84 400.09 399.42 398.88 397.45 396.93 Utilities 6.32 6.61 6.78 6.90 6.96 7.01 7.06 7.13 7.18 7.45 7.71 Construction 104.42 148.35 173.54 186.71 191.96 192.29 190.22 186.43 182.42 162.43 152.44 Manufacturing 8.61 8.91 8.67 8.09 7.43 6.61 5.98 5.49 5.04 4.12 4.41 Wholesale Trade 17.48 18.42 18.94 19.07 19.04 18.88 18.78 18.68 18.52 17.81 17.22 Retail Trade 96.07 108.58 118.41 126.46 133.39 139.62 144.99 150.39 155.61 180.08 204.59 Transportation & Warehousing 15.05 15.33 15.27 15.08 14.79 14.43 14.32 14.24 14.18 14.48 15.50 Information 5.60 6.00 6.19 6.25 6.24 6.16 6.10 6.03 6.01 6.07 6.46 Finance & Insurance 31.66 32.46 32.26 31.54 30.49 29.21 28.18 27.25 26.37 23.88 23.39 Real Estate, Rental & Leasing 60.58 70.98 78.80 84.78 89.63 93.63 97.41 101.14 104.80 124.02 146.03 Professional & Tech Services 43.32 48.57 52.06 54.47 56.30 57.42 58.72 60.09 61.22 66.86 73.15 Management of Companies & Enterprises 12.32 12.21 11.97 11.68 11.33 10.96 10.86 10.78 10.68 10.20 9.64 Administrative & Waste Services 57.01 62.26 65.49 67.44 68.82 69.46 70.19 70.77 71.44 74.62 78.31 Educational Services 6.55 7.87 8.91 9.79 10.63 11.46 12.34 13.26 14.27 19.85 26.05 Health Care & Social Assistance 64.79 71.17 76.90 82.09 87.46 92.80 98.08 104.00 110.23 146.51 191.53 Arts, Entertainment, & Recreation 15.76 17.88 19.81 21.61 23.35 25.10 26.82 28.70 30.59 41.26 54.02 Accommodation & Food Services 43.73 53.65 62.16 70.01 77.18 83.68 89.29 95.03 100.16 122.53 140.14 Other Services, except Public Administration 48.25 51.73 54.20 56.11 57.65 58.88 60.41 62.18 63.89 73.59 85.56 Yearly Total 1046.2 1147.6 1215.3 1261.5 1294.9 1318.8 1340.2 1361.3 1381.7 1493.4 1633.2 Source: Authors’ Calculations
Table 10: Kayenta Mine’s Cumulative Adjusted State Tax Revenues by County, 2011-2044

Region 

Cumulative Impact 

2011-2044 

(2011$) Percentage 

Apache County $6,450,981 2.2% Cochise County $281,243 0.1% Coconino County $13,687,786 4.6% Gila County $2,237,916 0.8% Graham County $14,491 0.0% Greenlee County -$198,758 -0.1% La Paz County $2,201 0.0% Maricopa County $35,171,969 11.9% Mohave County $462,479 0.2% Navajo County $228,700,634 77.1% Pima County $2,315,435 0.8% Pinal County $4,779,067 1.6% Santa Cruz County $100,920 0.0% Yavapai County $3,590,112 1.2% Yuma County -$969,834 -0.3% 

All Regions $296,626,643 100% 

 Source: Authors’ Calculations 
Table 11: Kayenta Mine’s Aggregate Adjusted State Tax Revenues for Arizona, 2011-2044

Region 

Year (Millions 2011$) 

2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 2039 

Arizona 4.34 4.78 4.95 5.05 5.31 5.57 5.78 6.01 6.22 7.34 8.67 10.31 12.23 

Source: Authors’ Calculations 

Table 12: Kayenta Mine’s Adjusted State Tax Revenues by Tax Type, 2011-204411

Category 

Year (Millions 2011$) 

2011 2012 2013 2014 2015 2016 2017 2018 2019 2024 2029 2034 2039 20

Income Tax 1.16 1.30 1.40 1.49 1.56 1.62 1.67 1.73 1.78 2.05 2.40 2.87 3.41 4General Sales Tax 2.13 2.36 2.36 2.32 2.46 2.60 2.71 2.84 2.95 3.55 4.23 5.05 6.01 7Selective Sales Tax 0.53 0.58 0.63 0.68 0.72 0.76 0.79 0.83 0.86 1.04 1.24 1.47 1.76 2Corporate Income Tax 0.52 0.54 0.55 0.57 0.58 0.59 0.60 0.61 0.62 0.70 0.80 0.92 1.06 1Total 4.34 4.78 4.95 5.05 5.31 5.57 5.78 6.01 6.22 7.34 8.67 10.31 12.23 14

Source: Authors’ Calculations 11 General State Sales Tax includes authors’ estimates of revenue from Prop 100 temporary tax. 
Page | 19 

3.3 Cumulative Economic Impact of Navajo Generating Station and Kayenta Mine 

To arrive at a total economic impact assessment of both operations at a county and state-wide level, the 

respective results for Navajo Generating Station and Kayenta Mine are aggregated. 

Tables 13-15 illustrate the total economic impact, private non-farm employment across sectors, and 

adjusted state tax revenues for both operations. 

Table 13: NGS and Kayenta Mine’s Total Economic Impact, 2011-2044

Total Private Non-Farm Employment ( 

(Full-Time or Equivalent Job Years) 

Cumulative 

Impact 

2011-2044 

Arizona 112,720 

Gross State Product 

(Billions 2011$) 

Arizona 20.46 

Real Disposable Personal Income 

(Billions 2011$) 

Arizona 11.16 

 Source: Authors’ Calculations 

Table 13 suggests that NGS and Kayenta Mine cumulatively support 112,720 full-time or equivalent job 

years in Arizona, 2011-2044. Real GSP during this period is higher relative to the baseline by $20.46

billion (2011$) throughout the state. Real disposable income during 2011-2044 is higher relative to the 

baseline by $11.16 billion (2011$) throughout Arizona. 

Table 14 unsurprisingly suggests that the utilities (16.5%) and mining (12.1%) sectors enjoy the greatest 

employment benefits, measured in job years, with the retail trade (11.9%), health care (11.5%) and 

construction (10.4%) sectors also enjoying significant indirect job creation. 

 
Page | 20 

Table 14: NGS and Kayenta Mine’s Total Private Non-Farm Employment across Sectors, 2011-2044 

Sector 

Cumulative 

Impact 

2011-2044 

(Full-Time Job 

Years) 

Forestry, Fishing, Related Activities & Other 79 

Mining 13,675 

Utilities 18,631 

Construction 11,756 

Manufacturing 206 

Wholesale Trade 1,303 

Retail Trade 13,410 

Transportation and Warehousing 914 

Information 500 

Finance and Insurance 2,302 

Real Estate and Rental and Leasing 7,887 

Professional and Technical Services 5,652 

Management of Companies and Enterprises 410 

Administrative and Waste Services 5,814 

Educational Services 1,525 

Health Care and Social Assistance 12,979 

Arts, Entertainment, and Recreation 3,095 

Accommodation and Food Services 6,692 

Other Services, except Public Administration 5,887 

Yearly Total 112,71812

 Source: Authors’ Calculations 

 

 

12 This differs slightly to Table 13 due to rounding-up. 
Page | 21 

Table 15: NGS and Kayenta Mine’s Total Adjusted State Tax Revenues by Tax Type, 2011-204413

Category 

Cumulative Impact 

2011-2044 

(Millions 2011$)14

Income Tax 203.72 

General Sales Tax 276.25 

Selective Sales Tax 80.13 

Corporate Income Tax 119.47 

Total 679.58 

 Source: Authors’ Calculations

Table 15 suggests that the cumulative total adjusted state tax revenues for NGS and Kayenta Mine, 

2011-2044 are approximately $680 million (2011$), of which 40.7% is general sales tax, 30% is income 

tax, 17.6% is corporate income tax and 11.8% selective sales tax. Coconino County benefits from 39.7%

of the 2011-2044 adjusted state tax revenues, equating to $269.5 million (2011$). Navajo County 

benefits from 34.6% of the 2011-2044 adjusted state tax revenues, equating to $228.7 million (2011$). 

Maricopa County benefits from 14.5% of the 2011-2044 adjusted state tax revenue, and Yavapai County 

6.8%. 

The continued operation of NGS and Kayenta Mine is therefore forecast to result in a significant increase 

in economic activity within Coconino County and Arizona as a whole. 

 

13 Numbers do not add up exactly due to rounding-up. 

14 General State Sales Tax includes authors’ estimates of revenue from Prop 100 temporary tax. 
Page | 22 

4. Direct Payments to the Navajo Nation 

The analysis presented in the previous sections summarizes the significant economic impact of NGS and 

Kayenta Mine at both a state and county level. Given the large percentage of Native American or 

Navajo workers employed by these facilities, one might also tentatively conclude that the closure of one 

or both facilities will have a significant negative impact upon the Navajo Nation’s economy. The REMI 

model used by this report is unable to estimate any impact exclusively for the Navajo Nation. 

As a result, a second study is under way focusing exclusively on the economic impacts for the Navajo 

Nation. This second study will include all direct payments made by NGS and Kayenta Mine to the Navajo

Nation throughout the period 2011 to 2044. 
Page | 23 

5. Conclusions and Recommendations 

The goal of this report is to provide an assessment of the economic impact of NGS and Kayenta Mine at 

both an operation-specific and aggregate level during the period 2011-2044, with a focus on 

employment, real GSP, real disposable personal income and state tax revenues. 

A summary of the economic impact of NGS and Kayenta Mine, individually and cumulatively, in the state 

of Arizona is displayed in Table 16, emphasizing the importance of both operations for the Arizona 

economy. 

Table 16 shows that both operations cumulatively account for 112,720 job years during 2011-2044. This

equates to almost $20.5 billion (2011$) in real GSP, approximately $11.2 billion (2011$) in real 

disposable income, and just under $680 million (2011$) in adjusted state tax revenues. 

Table 16: Summary of the Statewide Economic Impact of NGS and Kayenta Mine, 2011-2044 

Total 

Employment 

(Full-Time Job 

Years) 

Real Gross 

State Product 

(Millions 

2011$) 

Real 

Disposable 

Income 

(Millions 

2011$) 

Adjusted State 

Taxes 

(Millions 

2011$) 

Navajo Generating Station 57,793 12,161 5,352 382.96 

Kayenta Mine 54,927 8,296 5,811 296.62 

 

Cumulative Total 112,720 20,457 11,163 679.58 

Source: Authors’ Calculations

From an employment perspective, the mining and utilities sectors benefit the greatest throughout 

Arizona, accounting for 28.6% of the cumulative private, non-farm employment job years generated by 

NGS and Kayenta Mine during 2011-2044. However, retail trade (11.9%), health care and social 

assistance (11.5%), and construction (10.4%) also enjoy significant, positive employment impacts 

throughout the state. 

A significant percentage of each impact per macro-economic variable occurs in the host county of each 

facility, as summarized in Table 17. 
Page | 24 

Table 17: Percentage Impact of Key Macro-Economic Variables by Facility and Host County, 2011-2044 

Total 

Employment 

Real Gross 

State Product 

Real 

Disposable 

Income 

Adjusted State 

Taxes 

Navajo Generating Station – Coconino 

County 

71.1% 81.8% 67.9% 66.8% 

Kayenta Mine – Navajo County 72.5% 74.2% 72.8% 77.1% 

Source: Authors’ Calculations

Table 18 summarizes the total adjusted state tax revenues of NGS and Kayenta Mine impacting at a 

county level, and the total percentage of tax revenue impacts. 

Table 18: NGS and Kayenta Mine’s Cumulative Adjusted State Revenue Impact by County, 2011-2044 

Region 

Cumulative Impact 2011-2044 

(2011$) 

Percentage of 

Cumulative State 

NGS Kayenta Mine Total Total 

Apache County $1,180,119 $6,450,981 $7,631,100 1.12% 

Cochise County $309,909 $281,243 $591,152 0.09% 

Coconino County $255,778,467 $13,687,786 $269,466,253 39.65% 

Gila County $768,968 $2,237,916 $3,006,884 0.44% 

Graham County $177,477 $14,491 $191,968 0.03% 

Greenlee County $76,372 ($198,758) ($122,386) (0.02%) 

La Paz County $55,395 $2,201 $57,596 0.01% 

Maricopa County $64,074,325 $35,171,969 $99,246,294 14.60% 

Mohave County $2,044,777 $462,479 $2,507,256 0.37% 

Navajo County $6,113,656 $228,700,634 $234,814,290 34.55% 

Pima County $3,846,390 $2,315,435 $6,161,825 0.91% 

Pinal County $5,561,877 $4,779,067 $10,340,944 1.52% 

Santa Cruz County $155,214 $100,920 $256,134 0.04% 

Yavapai County $42,424,381 $3,590,112 $46,014,493 6.77% 

Yuma County $387,295 ($969,834) ($582,539) (0.09%)

All Regions $382,954,622 $296,626,643 $679,581,265 

Source: Authors’ Calculations 

Every county enjoys positive economic impacts throughout 2011-2044, with the exception of Greenlee 

and Yuma, who receive no benefits. Coconino County benefits to the greatest extent, receiving 39.65% 
Page | 25 

of the adjusted state tax revenues during 2011-2044. Navajo County also benefits significantly, receiving 

34.55% of the adjusted state tax revenues during 2011-2044. 

40.7% of the adjusted state tax revenues throughout Arizona are for general sales tax, 30% for income 

tax, 17.6% for corporate income tax and 11.8% for selective sales tax. 

Given the significant economic impact of NGS and Kayenta Mine, coupled with the large percentage of 

Native American or Navajo workers employed by these facilities, one might tentatively conclude that the 

closure of one or both facilities will have a significant negative impact upon the Navajo Nation’s 

economy. However, it is impossible to quantify the exact economic impact without first knowing: 

(a) The distribution of Navajo employees, in terms of both salaries earned from, and company 

positions held at, NGS and Kayenta Mine; 

(b) The current percentage of the Navajo working population employed by both facilities; and 

(c) Of greatest importance, the extent to which Navajo employees spend and invest any monies 

earned within the confines of their Nation, rather than elsewhere within or outside Arizona. 

Additional research is therefore needed, consisting of a survey of Navajo expenditure patterns and the

development of a bespoke Navajo-specific IMPLAN impact analysis for 2011, to robustly estimate the 

economic impact of NGS and Kayenta Mine exclusively for the Navajo Nation. 

 
Page | 26 

References 

Arizona Department of Economic Security. www.azdes.gov. 

U. S. Bureau of Census (2009) State Government Finance Database. www.census.gov. 

U. S. Bureau of Economic Analysis (2009) State Personal Income and Employment Database. 

www.bea.gov. 

U. S. Bureau of Labor Statistics (2009) Quarterly Census of Employment and Wages Database. 

www.bls.gov. 

U. S. Bureau of Labor Statistics (2010) Occupational Employment Statistics Database. www.bls.gov. 
Page | 27 

Glossary 

Gross State Product (GSP): The dollar value of all goods and services produced in Arizona for final 

demand/consumption. 

Job Year: A job year is equivalent to one person having a job for exactly one year. 

Real Disposable Personal Income: The household income that is available to be spent after taxes have 

been paid. Technically speaking, real disposable personal income is the sum of wage and salary 

disbursements, supplements to wages and salaries, proprietors’ income, rental income of persons, 

personal dividend income, personal interest income, and personal current transfer receipts, less 

personal taxes and contributions for government social insurance. 
Page | 28 

L. WILLIAM SEIDMAN RESEARCH INSTITUTE 

660 S MILL AVENUE, SUITE 300 

TEMPE 

AZ 85281-4011 

Tel: (480) 965 5362 

Fax: (480) 965 5458 

www.seidmaninstitute.com