2020 Census Tribal Consultation 

with the Navajo Nation

FINAL REPORT

Issued Summer 2017

TM
Acknowledgements

Our gratitude is extended to the Navajo Nation leadership who attended 

the tribal consultation meeting and provided written comments and 

advice, and whose input is contained in this report. Special thanks to 

Norbert Nez, and Arbin Mitchell for their support and preparation for this 

meeting.

Census Bureau executive leadership who participated in the consultation 

included: John H. Thompson, Director; Albert Fontenot, Acting 

Chief, Field Division; Deborah Stempowski, Chief, Decennial Census 

Management Division; and Tim Olson, Associate Director for Field 

Operations. Denver Regional Director Cathy Lacy and Denver regional 

staff also participated in the tribal consultation. 

The following headquarters Census Bureau staff delivered short 

presentations at the meetings: Dee Alexander, Office of Congressional 

and Intergovernmental Affairs; Deborah Stempowski and K. Evan Moffett, 

Decennial Census Management Division; and Vince Osier, Geography 

Division. Amadeo Shije, Tribal Partnership Specialist for the Denver 

Regional Office, also delivered a presentation. Norbert Nez, Census 

Information Center Contact for the Navajo Division of Community 

Development, led a discussion on residence criteria.

Dee Alexander (Cheyenne and Arapaho Tribes of Oklahoma), Tribal Affairs 

Coordinator, had primary responsibility for the tribal consultation and the 

final report.

Special thanks to Office of Intergovernmental Affairs staff Van Lawrence, 

Bina Kawe Saafi, Melissa Bruce and Akenabah Begay for their support 

and help with the tribal consultation meetings

Kauffman & Associates, Inc., an American Indian-owned firm, was 

contracted to provide logistical support for the 2020 Census tribal 

consultations and develop the final reports, including this report. 
TABLE OF CONTENTS

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

The 2020 Census Tribal Consultation Process . . . . . . . . . . . . . . 2

2020 Census Tribal Consultation with the Navajo Nation . . . . . . 3

Census Bureau Headquarters Support . . . . . . . . . . . . . . . . . . . . . . . 3

Contractor Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Background Materials . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Meeting Agenda . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Tribal Consultation Participants . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Tribal Consultation Themes . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Geography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Enumeration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Partnership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

Residence Criteria . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

Overarching Themes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Effects of Census Data on the Navajo Nation . . . . . . . . . . . . . . . . . 13

Communication to Constituents about How to Respond . . . . . . . . . . 13

Follow-Up Items . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

Completed Follow-Up Items . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

Next Steps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Appendix A: Resolution from the Eastern Navajo Land 

Commission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Appendix B: Comments from the Navajo Nation Human Rights 

Commission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

Appendix C: Meeting Notes from the 2020 Census Tribal 

Consultation with the Navajo Nation . . . . . . . . . . . . . . . . . . . . 20

Attendees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

Introductory Remarks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Presentations and Discussion . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Closing Remarks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48

Action Items . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
TM

Final Report
Navajo Nation Consultation Final Report • 1

Executive Summary

In recognition of the importance of engaging with individual tribal nations to achieve an 

accurate count of tribal citizens in the 2020 Census, the Census Bureau held a one-on-one 

tribal consultation with the Navajo Nation. The objectives of the tribal consultation meeting 

included:

u encouraging open communication between the Census Bureau and the Navajo 

Nation,

u collecting input on how to effectively implement programmatic and operational 

activities,

u recording and addressing outcomes and recommendations, and

u clarifying Census Bureau programs and activities related to the 2020 Census.

The meeting agenda was developed in coordination with the Navajo Nation to address tribal 

concerns, comments, and questions. Agenda topics included:

u geography,

u enumeration,

u the 2020 American Indian and Alaska Native (AIAN) Partnership Program, and

u residence criteria.

This report summarizes the input received from Navajo Nation leadership by topic. Next, 

the report explores several overarching themes covered during the consultation that 

transcend the agenda topics, including the importance of gathering accurate data for the 

Navajo Nation and the need for the Navajo government to inform its citizens about how 

to respond to the census question on race. The report concludes by outlining next steps 

based on follow-up items identified during the tribal consultation.

Comments from the Navajo Nation Human Rights Commission and a resolution from the 

Navajo Nation Council regarding tabulation of data for the Eastern Navajo Agency are 

attached in Appendices A and B, respectively. For further reference, notes from the tribal 

consultation are included in Appendix C.
2 • UNITED STATES CENSUS BUREAU 

The 2020 Census Tribal Consultation 

Process

Tribal consultation is a forum for meaningful dialogue in the context of the government-togovernment relationship between the federal government and tribes. It emphasizes open 

communication around upcoming decisions, policies, or actions that may impact tribes. In 

preparing for the decennial census, tribal consultation helps to:

u involve tribes in decision-making,

u give tribal governments an open forum to raise issues or concerns,

u enhance communication between the Census Bureau and tribal leaders,

u strengthen partnerships between the Census Bureau and tribes, and

u identify action items or issues that need further input.

Tribal consultation is a vital component in ensuring that everyone is counted in the 

decennial census. It is the basis of the Census Bureau’s partnership with tribal governments 

and the springboard for planning an accurate count of American Indians and Alaska Natives 

in the decennial census. To honor the government-to-government relationship between the 

federal government and tribes and ensure tribal input is incorporated into the design and 

execution of the 2020 Census, the Census Bureau began consulting with tribal leaders five 

years in advance of the decennial census.

The 2020 AIAN Program leads the Census Bureau’s tribal consultation process. This 

program exists to raise awareness of the purpose and importance of the census among 

tribal audiences. The AIAN Program emphasizes outreach to American Indians and Alaska 

Natives living on tribal lands—a historically undercounted population—to promote a 

complete, accurate count of tribal populations in the 2020 Census.

Guided by the Department of Commerce’s tribal consultation policy, as well as its own, 

the Census Bureau executed an initial round of tribal consultations, which included eight 

meetings and a national webinar, followed by a second round of nine meetings as part of 

the 2020 AIAN Program. During this second round of consultations, the Census Bureau 

held a tribal consultation specifically with the Navajo Nation.
Navajo Nation Consultation Final Report • 3

2020 Census Tribal Consultation with the 

Navajo Nation

Working with and achieving accurate counts for all tribal entities in the United States is a 

priority for the Census Bureau. As a geographically immense sovereign tribal nation with a 

large constituency, the Navajo Nation requires special approaches to ensure Navajo citizens 

are counted accurately in the 2020 Census. Navajo Nation lands span three states and 13 

counties, and they contain multiple levels of sub-geography, including districts, agencies, 

and chapters. The Navajo Nation has expressed a commitment to achieving an accurate 

count of Navajo citizens through partnership with the Census Bureau and invited the 

Census Bureau to visit the Navajo Nation for a tribal consultation. On September 19, 2016, 

the Census Bureau visited the Navajo Nation in Mentmore, NM, for a one-on-one tribal 

consultation about the 2020 Census.

CENSUS BUREAU HEADQUARTERS SUPPORT

The Census Bureau partnered with the Navajo Nation to set up this one-on-one tribal 

consultation at the tribe’s invitation. Census Bureau leadership, including Director John 

Thompson, participated in this tribal consultation.

CONTRACTOR SUPPORT

The Census Bureau contracted with Kauffman & Associates, Inc., (KAI) an American 

Indian-owned professional services firm, to assist with planning and executing the tribal 

consultation.

KAI sent the initial invitation and additional notifications to tribal leaders, helped arrange 

travel, and created the meeting agenda. Onsite at the consultation, KAI provided logistics, 

registration, and note-taking services; developed summary notes following the tribal 

consultation; and created the final report.

BACKGROUND MATERIALS

The 2020 Census Tribal Consultation Handbook, which was sent to tribes prior to the 2020 

Census tribal consultations, contains information on tribal consultation topics, and each 

topic is accompanied by discussion questions intended to help tribal delegates prepare 

their responses.
4 • UNITED STATES CENSUS BUREAU 

MEETING AGENDA

The meeting agenda, developed in partnership with the Navajo Nation, focused on three of 

the tribal consultation topics presented in the 2020 Census Tribal Consultation Handbook 

that were of greatest concern to the Navajo Nation: geography, enumeration, and the 2020 

AIAN Partnership Program.

The agenda also included a discussion on residence criteria—a topic unique to this tribal 

consultation that was requested by the Navajo Nation. Flexibility was built into the agenda 

structure to stimulate discussion and gather the Navajo Nation’s input, concerns, and 

questions about the 2020 Census.

The tribal consultation opened with remarks from Census Bureau Denver Regional Director 

Cathy Lacy, Census Bureau Director John H. Thompson, Navajo Nation Vice President 

Jonathan Nez, and Navajo Nation Speaker LoRenzo Bates. Introductions were then 

conducted around the table, followed by a brief presentation from the Census Bureau that 

summarized planning for the 2020 Census.

Next, the Census Bureau delivered brief presentations on geography, enumeration, and the 

2020 AIAN Partnership Program. Each Census Bureau presentation concluded by posing 

discussion questions that reflected those included in the 2020 Census Tribal Consultation 

Handbook. The Navajo Nation led a discussion on census residence criteria and how the 

rules affect Indian Country and the Navajo Nation specifically.

TRIBAL CONSULTATION PARTICIPANTS

Participants at the consultation included Navajo Nation leaders and representatives, 

Census Bureau executive leadership, and Census Bureau headquarters and Denver 

Regional Office staff.

Navajo Nation Participants

Fourteen Navajo Nation leaders and representatives participated in the tribal consultation.

Vice President Jonathan Nez and several delegates from the Office of the President and 

Vice President represented the executive branch of the Navajo Nation government. Under 

the legislative branch, Speaker LoRenzo Bates and leadership from the Human Rights 

Office and Navajo Nation Council attended. Additionally, five divisions of the Navajo Nation 

government were represented, including:

u Natural Resources,

u Social Services,

u Transportation,

u Economic Development, and

u Community Development.
Navajo Nation Consultation Final Report • 5

Census Bureau Leadership

Census Bureau executive leadership in attendance included:

u John H. Thompson, Director;

u Cathy Lacy, Denver Regional Director;

u Tim Olson, Associate Director for Field Operations;

u Deborah Stempowski, Chief, Decennial Census Management Division; and

u Albert Fontenot, Acting Chief, Field Division.

Staff from the Geography and Decennial Census Management Divisions, the Office of 

Congressional and Intergovernmental Affairs, and the Denver Regional Office attended and 

delivered brief presentations to inform discussions with tribal leaders.
6 • UNITED STATES CENSUS BUREAU 

Tribal Consultation Themes

This portion of the report summarizes, by topic, the Navajo Nation’s responses to the 

discussion questions related to the three tribal consultation topics covered, as well as 

their comments on the residence criteria. The sections below correspond with each of the 

agenda topics, which included:

u geography,

u enumeration,

u the 2020 Partnership Program, and

u residence criteria.

Subsections under each of the first three topics summarize the Navajo Nation’s responses 

to a particular discussion question for each topic.

GEOGRAPHY 

In addition to producing total counts at the national level, the Census Bureau tabulates 

data for all households located within specific geographic areas, such as within the Navajo 

Reservation or within specific Navajo Nation chapters. The Census Bureau wants to 

collaborate with the Navajo Nation to define tribal geographies that will return useful data to 

the Navajo Nation.

Statistical areas can be defined when a tribe needs data for a certain area that does not 

have legally defined boundaries. The Participant Statistical Areas Program provides an 

opportunity for tribes to define and update statistical boundaries.

To ensure the correct households are counted toward a particular geography, the Census 

Bureau must have up-to-date boundaries and accurate housing unit locations. Through 

the Boundary Annexation Survey, the Census Bureau will ask the Navajo Nation to review 

their boundaries and provide updates. Through the Local Update of Census Addresses, 

the Navajo Nation can review and update the Census Bureau’s address list to ensure the 

Census Bureau enumerates tribal lands according to a complete, accurate address list.

Geographies Used

If a tribe needs data on a population within an area that lacks legally recognized 

boundaries, such as an unincorporated community within a reservation or a concentrated 

population of tribal citizens living off-reservation, the tribe can work with the Census 

Bureau to designate a statistical area, such as a census tract.
Navajo Nation Consultation Final Report • 7

Discussion question: Does the Navajo Nation use data from the Census Bureau’s tribal 

statistical geographic areas? Does the Navajo Nation use data from census tracts?

Navajo Nation Response 

The Navajo Nation commonly uses standard census tracts when dealing with outside 

entities. For internal use, the Navajo Nation relies more heavily on census blocks, so it is 

important that census blocks align with Navajo Nation chapter boundaries and encompass 

populations of no more than 100 people, since redistricting may bisect census blocks and 

assign the entire block population to one district or the other.

Geographies Needed

Discussion question: Are there geographic areas or other types of geographic data 

that the Census Bureau does not currently provide that would be useful for the Navajo 

Nation?

Navajo Nation Response

The Navajo Nation has requested to be treated as a distinct Census Bureau region for data 

collection purposes. The tribe also needs data for Navajo Nation sub-geographies, which 

include:

u chapters,

u districts, and

u agencies.

The Navajo Nation as a Census Bureau Region

Navajo Nation lands span three states, which some federal agencies attribute to three 

different regions. The Navajo Nation has asked other federal agencies to recognize the 

Navajo Nation as a distinct region and requested the same from the Census Bureau to 

simplify data collection and tabulation for Navajo lands.

Chapter Boundaries

The Census Bureau recognizes tribal subdivisions, including Navajo Nation chapters, as 

legal geographic areas. The Navajo Nation needs the Census Bureau to produce data for 

individual chapters, but must first resolve chapter boundaries internally.
8 • UNITED STATES CENSUS BUREAU 

Eastern Navajo Agency

Census Bureau data that the Navajo Nation currently receive for the Eastern Navajo Agency 

(ENA) exclude ENA households located on state, private, and fee lands. The Navajo 

Nation Council released a resolution recommending that, for the decennial census and 

the American Community Survey, the Census Bureau tabulate all land within the ENA as 

a collective land base, including those on non-trust lands, since the Navajo Nation is the 

governing body of all households in that area. The full text of the resolution is included in 

this document as Appendix A.

Navajo Households on Hopi-Partitioned Lands

The Navajo-Hopi Land Settlement Act divided jointly owned Navajo-Hopi land, creating 

Hopi-Partitioned Lands (HPLs) and Navajo-Partitioned Lands. Navajo constituents still 

residing on HPLs should not be counted toward the Hopi Tribe even though they reside 

on legally recognized Hopi lands. The Navajo Nation needs the Census Bureau’s support 

in addressing this complexity and ensuring Navajo households within HPLs are counted 

correctly.

Local Update of Census Addresses

In summer 2017, through the Local Update of Census Addresses (LUCA) geography 

program, the Census Bureau will ask the Navajo Nation to review and update an address 

list for Navajo lands.

Discussion question: Is the Navajo Nation ready to participate in LUCA for the 2020 

Census?

Navajo Nation Response

Address records within the Navajo Nation’s database are sporadic and uncomprehensive.

Some Navajo Nation chapters have done 911 address assignment for rural areas, but 

others are lagging behind on the project due to funding constraints. McKinley and San 

Juan Counties of New Mexico have completed much rural addressing work, including 

checkerboard areas of Navajo land in Utah. However, the Navajo Nation and these counties 

have not compared their address information. To compile the most accurate address 

list, the Navajo Nation recommended that the Census Bureau collect rural addressing 

information from these counties, gather data from the Navajo Nation’s rural addressing 

coordinator, and then overlay the two information sources.
Navajo Nation Consultation Final Report • 9

ENUMERATION 

The 2020 Census will offer several response options. The primary response option will be 

an online version of the census form. The Census Bureau will also offer options to respond 

through a paper questionnaire or over the telephone.

For places where other response options are not feasible, and to follow up with households 

that do not respond, the Census Bureau will conduct in-person enumeration by sending 

interviewers to knock on doors. The Census Bureau plans to hire local enumerators to 

conduct in-person enumeration. In recognition of the unique considerations for enumerating 

tribal communities, the Census Bureau would like individual tribal input on the best way to 

enumerate each tribal community.

The Census Bureau plans to use in-person enumeration for the Navajo Nation unless asked 

to do otherwise. The Census Bureau wants to work with the Navajo Nation, as it hopes to 

with every tribe, to determine the best way to enumerate the tribe’s population.

Enumeration Challenges

The Census Bureau faces unique challenges in enumerating tribal populations, such as 

a fear that individual information reported in the census will not remain confidential. For 

example, a respondent from a household containing multiple families may hesitate to 

disclose the true number of residents in the household out of fear of being reported to the 

housing authority for overcrowding. Despite these challenges, the Census Bureau and the 

Navajo Nation must work together to ensure all Navajo citizens are counted in the 2020 

Census.

Discussion question: How can the Census Bureau ensure that every person within 

a household is counted, especially if there are more than one family, or multiple 

generations of the same family, living in the home?

Navajo Nation Response

The Census Bureau and the Navajo Nation should work together to raise public awareness 

about confidentiality of responses from individuals and individual households. Navajo 

Nation delegates emphasized that tribal citizens need to be assured that they will not be 

penalized for overcrowded housing.

The Navajo Nation requested that the Census Bureau hire local enumerators who speak 

Navajo, since many Navajo citizens, especially in rural areas, speak Navajo. Enumerators 

should be hired from within the specific Navajo communities that they will be tasked 

to enumerate. Elders, in particular, may not trust a non-Native enumerator or a Navajo 

enumerator from a different community.
10 • UNITED STATES CENSUS BUREAU 

Preferred Enumeration Approach

In recognition of the government-to-government relationships between the Census Bureau 

and each tribal nation, the Census Bureau is gathering individual tribal input on the best 

way to enumerate each tribal community.

Discussion question: Could you share with the Census Bureau your preferred 

enumeration approach for the 2020 Census?

Navajo Nation Response 

While some Navajo citizens may choose to respond to the census online, many low-income 

households cannot afford Internet access. Telephone response will not be feasible for 

many Navajo households, as cell phone coverage is poor in some areas, and many people 

purchase phone plans by minute.

The Navajo Nation prefers that in-person enumeration be the primary approach for counting 

the Navajo population, but highlighted the importance of presenting multiple response 

options.

In-person enumeration is crucial for enumerating HPLs where Navajo citizens live. The 

Navajo Nation recommended that the Census Bureau hire a Navajo enumerator to visit 

Navajo households located in HPLs.

PARTNERSHIP

Through the 2020 AIAN Partnership Program, the Census Bureau aims to strengthen 

collaboration with the Navajo Nation to jointly ensure a complete, accurate count of Navajo 

citizens. The program comprises three components, which are described below.

u Through the Tribal Governments Liaison Program, tribal leaders can designate a 

point of contact to communicate between the Census Bureau and the tribe about 

census issues.

u Tribal Complete Count Committees (TCCCs) are created by tribal leaders to conduct 

outreach to their communities about the importance of the census and how they 

should self-identify.

u Partnerships with AIAN organizations, such as tribal community centers and 

enrollment offices, are key to raising awareness of and promoting participation in 

the census.
Navajo Nation Consultation Final Report • 11

Increasing Awareness

The AIAN Partnership Program leverages the trusted voices of tribal leaders to promote 

tribal participation in the census. It encourages tribal leaders to educate tribal citizens 

about the importance of the census and how to respond.

Discussion question: How can Census Bureau staff devoted to working with tribal 

governments most effectively improve participation in the 2020 Census?

Navajo Nation Response

Vice President Nez requested that the Census Bureau collaborate with the Navajo Nation to 

create a public awareness campaign that is tailored to Navajo constituents.

The Navajo Nation also emphasized the importance of the tribal government 

communicating to Navajo citizens to raise awareness about the census. The Navajo Nation 

delegates noted that all tribal employees should be involved in sharing the message, and 

each Navajo government division should leverage division newsletters and other channels 

to present the information to the people it serves.

Building Trust

To engage tribes as active partners in counting tribal citizens across the United States, the 

Census Bureau recognizes a need to build trust with tribal communities. However, given 

the complex history of federal-tribal relationships, overcoming distrust will be a significant 

challenge.

Discussion question: How does the Census Bureau build trust with the Navajo Nation?

Navajo Nation Response

Leading up to the 2010 Census, the president of the Navajo Nation released a resolution 

urging Navajo citizens to participate in the census. Following the overarching resolution, 

each chapter published a similar resolution. The tribal delegates discussed repeating this 

strategy to build trust around the 2020 Census.
12 • UNITED STATES CENSUS BUREAU 

RESIDENCE CRITERIA

The Navajo Nation’s Norbert Nez led a discussion on residence criteria, specifically 

regarding the way college students are counted, and how those rules affect the Navajo 

Nation.

Under the current residence criteria, the Census Bureau counts all college students where 

they attend college. Most college students leave the Navajo Reservation to pursue higher 

education, though they typically return during the summers and the majority intend to 

reside on the reservation after graduating college. This trend is evidenced by the low 

number of 18- to 21-year-olds living within the Navajo Reservation. Counting college 

students at their student housing locations, rather than at their permanent homes, skews 

the tribe’s numbers. Since there are few higher education opportunities on the reservation 

to draw in young adults to compensate for those who left to attend college, the result 

is a dip in the Navajo Nation’s young adult population. The skewed number of young 

adults makes it difficult for the Navajo Nation to justify funds for education needs on the 

reservation, like BIA scholarships or summer internship programs.

The Navajo Nation requested that the Census Bureau consider instituting an exception to 

the residence criteria for Navajo college students who attend college off-reservation, and 

instead count them at their permanent homes.
Navajo Nation Consultation Final Report • 13

Overarching Themes

Often, overarching themes emerge during tribal consultation that do not fit under the 

agenda topics. During the tribal consultation with the Navajo Nation, topics that surfaced 

consistently included:

u the critical need for an accurate count of the Navajo Nation and 

u the importance of tribal communication to constituents about how to self-identify.

EFFECTS OF CENSUS DATA ON THE NAVAJO NATION 

Accurate census counts are critical to ensuring that tribes are allocated the appropriate 

amount of funds for health, housing, and other crucial programs. Tribes also need accurate 

census data to plan how to use their resources effectively.

The Navajo Nation reported an undercount of Navajo citizens in the 2010 Census.

Miscounts directly affect funding for tribal programs and planning decisions made by the 

Navajo Nation, and can dilute the tribe’s representation in the drawing of voting precincts 

and legislative districts. Census data even affect how the Navajo Nation structures its 

government; for example, the tribal council’s membership was reduced greatly based on 

population numbers from the 2010 Census.

COMMUNICATION TO CONSTITUENTS ABOUT HOW TO RESPOND

The importance of communication from the Navajo Nation to constituents about the census 

arose several times during the tribal consultation. In addition to helping raise awareness 

about and build the community’s trust of the census, tribes can help ensure useful census 

data are gathered, tabulated, and returned to the tribe by informing tribal citizens about 

how to respond to the race question.

The Navajo Nation repeatedly expressed a need for census data for each Navajo chapter.

In addition to defining each chapter’s geographic boundary, gathering accurate chapter 

data also means collecting chapter affiliation alongside tribal affiliation through the census 

question on race. Regardless of whether chapter members live off-reservation or within 

the geographic boundaries of a different chapter, Navajo respondents’ chapter affiliations 

can be captured through the write-in space that accompanies the race question. To ensure 

chapter affiliation data are gathered, the Navajo Nation should convey to its constituency 

the importance of including their chapter affiliations in the write-in space. If the data 

are successfully collected through the census form, the Census Bureau can tabulate 

populations for each Navajo chapter and return the data to the Navajo Nation.
14 • UNITED STATES CENSUS BUREAU 

Follow-Up Items

This section notes follow-up items identified by the Census Bureau during the tribal 

consultation and indicates the actions the Census Bureau has taken and will take to follow 

up with tribal questions, comments, and concerns.

COMPLETED FOLLOW-UP ITEMS

The Census Bureau has fulfilled the following commitments made during the tribal 

consultation with the Navajo Nation.

u The Census Bureau director approved the Navajo Nation’s request to have a 

special tabulation for all parts of the Eastern Navajo Agency. The Census Bureau 

communicated this information to the Navajo Nation and noted that the Disclosure 

Review Board has final approval on the release and production of the tabulation.

u The Census Bureau Denver Regional Office confirmed that there will be a Navajo 

Nation Area Census Office in Window Rock, AZ, for the 2020 Census operations.

u The Census Bureau has provided the following response to an inquiry from the 

Navajo Nation regarding adjustment of the residence criteria for Navajo Nation 

college students who temporarily reside off-reservation.

College students are counted at the college/university student housing 

where they are living or staying at the time of the census on April 1. College/

university student housing contact persons will be given several enumeration 

options for their residents (students). (1) Contact persons can send facility 

administrative records via e-response. (2) Enumerators can drop off the census 

questionnaires and return to pick them up once completed. (3) Enumerators can 

conduct interviews with residents to complete the census form. (4) Facility self 

enumeration: where the census forms are dropped off with the contact person, 

he/she distributes the questionnaires to the residents, and the enumerator 

returns later to pick them up. (5) Contact persons can provide the enumerator 

with a roster printout containing basic demographic information for each 

resident. Per residence rules, U.S. college students living outside the United 

States while attending college outside the United States are not counted in the 

census.
Navajo Nation Consultation Final Report • 15

NEXT STEPS

Based on follow-up items identified during the tribal consultation, the Census Bureau will 

do the following.

u The Census Bureau Denver Regional Office has tentative plans to meet with the 

Navajo Nation in early February 2018 if the Navajo Nation is available. During the 

meeting, the Census Bureau plans to discuss Tribal Complete Count Committee 

information. As requested, the Census Bureau will provide any available handbooks 

or other materials at that time.

u The Census Bureau would like to hire a partnership specialist to work specifically 

with the Navajo Nation for the 2020 Census. During the 2010 Census, the Census 

Bureau had a partnership specialist dedicated to Navajo Nation and saw positive 

outcomes from this arrangement. The feasibility of creating this position for the 

2020 Census will depend on funding for the Partnership Program. At a minimum, the 

Denver Regional Office plans to employ a partnership assistant who is dedicated to 

working with the Navajo Nation.

u The Census Bureau plans to provide public service announcements that 

tribes can share with their citizens. The Census Bureau will work with the 

subcontractor responsible for outreach to AIAN populations to ensure that the 

PSAs are informative and culturally relevant. Whenever possible, the PSAs will be 

customizable at the local level.

u The Census Bureau will provide training for enumerators. Tribal liaisons will be 

welcome to attend the full enumerator training class. The Denver Regional Office 

plans to conduct training on the Tribal Governments Liaison Program with all tribes 

in late 2018 through early 2019 (pending funding). The training will briefly review 

census operations.

Conclusion

The Census Bureau gathered many useful insights and recommendations from the Navajo 

Nation during the tribal consultation. The meeting provided a forum for the Census Bureau 

to share plans for the 2020 Census and collect valuable input on how to achieve an 

accurate count of the Navajo Nation and improve the census process for Indian Country as 

a whole. Consulting with the Navajo Nation helped forge a strong partnership and inform 

the Census Bureau’s planning for the 2020 Census.
TM

Appendices
Navajo Nation Consultation Final Report: Appendix A • 17

Appendix A: Resolution from the Eastern 

Navajo Land Commission

Page 1 of the Eastern Navajo Land Commission Resolution
18 • UNITED STATES CENSUS BUREAU 

Page 2 of the Eastern Navajo Land Commission Resolution
Navajo Nation Consultation Final Report: Appendix B• 19

Appendix B: Comments from the Navajo 

Nation Human Rights Commission

Written Comments from the Navajo Human Rights Commission
20 • UNITED STATES CENSUS BUREAU 

Appendix C: Meeting Notes from the 

2020 Census Tribal Consultation with the 

Navajo Nation

Navajo Nation Division of Transportation, Mentmore, NM

Monday, September 19, 2016, 9 a.m.–4:30 p.m.

ATTENDEES

Navajo Nation Delegates

Total: 14

u LoRenzo Bates, Speaker, Navajo Nation Council

u Lauren Bernally, Human Rights Office

u Roxanne Gorman, Department Manager, Navajo Department for Self Reliance

u Mike Halona, Department Manager, Navajo Land Department

u Ryan James, GIS Analyst, Division of Natural Resources

u Mihio Manus, Senior Public Information Officer, Office of the President and Vice 

President

u Arbin Mitchell, Chief of Staff, Office of the President and Vice President

u Jonathan Nez, Vice President, Navajo Nation

u Norbert Nez, Census Information Center Contact, Navajo Division of Community 

Development 

u Virgil Pablo, Division of Social Services

u Larry Rodgers, Executive Director, Eastern Navajo Land Commission

u Perry Riggs, Deputy Executive Director, Navajo Nation Washington Office

u Carl Slater, Senior Public Information Officer, Division of Transportation

u Beatrice Watchman, Division of Economic Development

Census Bureau Staff

Headquarters

u Dee Alexander, Tribal Affairs Coordinator, Office of Congressional and 

Intergovernmental Affairs

u Albert Fontenot, Acting Chief, Field Division
Navajo Nation Consultation Final Report: Appendix C • 21

u K. Evan Moffet, Assistant Chief, Geographic Operations, Decennial Census 

Management Division

u Tim Olson, Associate Director for Field Operations

u Vince Osier; Branch Chief; Geographic Standards, Criteria, and Quality; Geography 

Division

u Deborah Stempowski, Chief, Decennial Census Management Division

u John Thompson, Director

Denver Regional Office

u Mark Helfritz, Assistant Regional Census Manager

u Cathy Lacy, Regional Director

u Amadeo Shije, Tribal Partnership Specialist

u Fred Stevens, Tribal Partnership Specialist

Other Attendees

u Jennifer Gillissen, Director of Meeting and Event Planning, Kauffman & Associates, 

Inc.

u Katie Terra, Technical Writer, Kauffman & Associates, Inc.

INTRODUCTORY REMARKS

Welcome

Tim Olson welcomed everyone to the tribal consultation and thanked the Navajo Nation for 

hosting the meeting.

Opening Ceremonies

Arbin Mitchell provided the opening prayer.

Opening Remarks

Cathy Lacy

This was Cathy Lacy’s second tribal consultation with the Navajo Nation in preparation for 

the 2020 Census. Ms. Lacy expressed appreciation to the Navajo Nation for supporting 

the Census Bureau’s efforts and emphasizing the importance of the census. The Census 

Bureau’s Denver Regional Office will be the Navajo Nation’s local point of contact. The 

Denver Regional Office did not have tribal partnership staff employed during the tribal 

consultations for the 2010 Census, but this time, two tribal partnership specialists, Fred 

Stevens and Amadeo Shije, are available to work with the Navajo Nation on a variety of 

census issues.
22 • UNITED STATES CENSUS BUREAU 

Director John Thompson 

Director Thompson thanked the Navajo Nation. He stated that his sole goal in his career at 

the Census Bureau is to produce quality data for the public good. Two principles guide the 

Census Bureau’s work—the Census Bureau tribal consultation policy and the Department of 

Commerce tribal consultation policy. The Census Bureau’s Dee Alexander worked with the 

Department of Commerce on the tribal consultation policy’s development to ensure it would 

reflect appropriate usage. The policies require the Census Bureau to consult with tribes 

on preferred courses of action before making decisions or implementing policies, rules, or 

programs that may affect tribal communities. For some issues that surfaced in advance of 

the 2010 Census, it was too late for the Census Bureau to address them. Leading up to the 

2020 Census, the Census Bureau has begun tribal consultations two years earlier than was 

done for the 2010 Census.

Vice President Jonathan Nez

Vice President Nez welcomed the Census Bureau to the Navajo Nation and thanked the 

Bureau for granting the Nation’s invitation for tribal consultation. The Navajo Nation staff 

represented at the table are experts at counting the Navajo people and providing direct 

services to constituents. Arbin Mitchell is the census point of contact within the Navajo 

Nation.

Vice President Nez welcomed the Census Bureau on behalf of President Begay. He 

recognized that the 2010 Census resulted in many benefits, including a total count of 

Navajo people. Other tribal nations often say Navajo are everywhere, and the Navajo Nation 

does have citizens all over the world.

The place where a Navajo’s umbilical cord is buried is considered home. Many people 

whose umbilical cords are buried on Navajo land live temporarily off the reservation to work 

or attend school. However, about 90 percent of them wish to return home at retirement 

age. The Navajo Nation wants an accurate count in the 2020 Census and appreciates the 

Census Bureau beginning the dialogue earlier than was done for the previous decennial 

census. Miscounts undermine the Navajo Nation’s representation in legislative and voting 

districts. Counties have better tools for counting populations since they are less rural than 

tribes. The Navajo Nation could lose some of its voice in the legislature if the population is 

counted inaccurately. The Navajo Nation is growing.

The Navajo Nation has resources available, as far as employing local enumerators. This is 

important to achieving an accurate count for several reasons, including the fact that many 

constituents, especially those in rural locations, speak Navajo. Elders may not trust a nonNative enumerator or even a Navajo enumerator who is not from the same community.

Vice President Nez made several requests on behalf of the Navajo Nation.

u Recognize the Navajo Nation as its own region: Across federal agencies and 

U.S. geographic boundaries, the Navajo Nation is divided in many ways. The Navajo 

Nation spans 13 counties. Navajo Nation lands are in New Mexico, Arizona, and 

Utah. Because each of these states is in a different EPA region, the Navajo Nation is 
Navajo Nation Consultation Final Report: Appendix C • 23

split among three EPA regions. The Navajo Nation has asked that federal agencies 

view the Navajo Nation as its own region, and respectfully requests the same from 

the Census Bureau.

u Hire local enumerators who speak Navajo: The Navajo Nation also requested that 

Navajo speakers be employed as enumerators to best reach tribal elders.

u Work with the Navajo Nation to create a tailored public awareness campaign:

The Census Bureau tends to use a broad campaign for all of Indian Country, but all 

tribes are different. The Navajo Nation requested a census campaign specifically for 

the Navajo Nation that emphasizes Navajo people, lineage, and way of life.

Navajo lands contain checkerboard areas. The 1974 Navajo-Hopi Land Settlement Act 

created Hopi-Partitioned Lands (HPLs) and Navajo-Partitioned Lands (NPLs). Navajo 

families living on HPLs are still Navajo voters who are represented by Navajo leadership.

How does the Census Bureau define that? Who are the HPL and NPL counts attributed 

to? The Navajo Nation appreciates the Census Bureau’s help in working to address these 

complexities.

Speaker LoRenzo Bates

Speaker Bates welcomed the Census Bureau to the Navajo Nation and expressed 

appreciation for the Bureau’s collaboration with Navajo leadership. Speaker Bates is an 

elected official who serves on a council that represents all 110 Navajo chapters. The 

council previously included 88 members, but was recently cut to 24. Speaker Bates 

previously represented one chapter, but now represents six chapters. Similar increases 

occurred across council members. The Eastern Navajo Agency (ENA) delegate represents 

eight chapters. The ENA is widely dispersed and driving between chapters takes 3 to 4 

hours, which reduces the delegate’s availability to actually engage with the chapters. 2010 

Census numbers were the Navajo Nation’s justification for reducing council membership 

from 88 to 24. Census data have a significant ripple effect in how the tribal government 

is structured, as well as in other ways. It steers the allocation of nearly 400 million federal 

dollars. Miscounting the Navajo Nation would result in less funding for many programs.

2010 Census data appeared to indicate a loss of 4,000 Navajo constituents from the 2000 

Census numbers. This was likely an undercount rather than a loss of citizens. There are five 

agencies within the Navajo Nation. The majority of Navajo Nation-allotted lands are located 

within the ENA, so the undercount could have occurred in this area if those residing on 

allotted lands were not counted.

Speaker Bates brought copies of a resolution from the Eastern Navajo Land Commission 

of the Navajo Nation Council requesting that the Census Bureau collect and tabulate 

population, social, economic, and housing data for all parts of the 31 ENA chapters as 

part of the decennial census and American Community Survey (ACS). The results for 

all ENA chapters should also be included in tabulations for the reservation as a whole.

Currently, data are only collected for tribal trust and individual allotment lands, which does 

not accurately reflect the population of the ENA. See Appendix A for the full text of the 

resolution.
24 • UNITED STATES CENSUS BUREAU 

The Navajo Nation is growing, which has associated challenges. The tribe is working to 

maximize its limited resources while ensuring resource continuity for future generations.

These efforts include forming partnerships with county, state, and federal agencies to 

extend resources.

Many census land blocks that are designated for Navajo land encompass large populations 

and large geographic areas of the Navajo Nation. This designation can result in inaccurate 

counts. When redistricting on Navajo lands, it is better to create census blocks with smaller 

populations. The Navajo Nation recommends creating blocks that contain no more than 100 

people.

[The Census Bureau played a short video with welcoming remarks from U.S. Secretary 

of Commerce Penny Pritzker.]

Secretary Pritzker thanked the tribal delegates for attending the consultation and working 

with the Census Bureau to develop the 2020 Census. When Secretary Pritzker visited Indian 

Country recently, tribal leaders expressed how critical it is to gather accurate data from the 

American Indian and Alaska Native (AIAN) communities during the next decennial census.

The Census Bureau is conducting a series of tribal consultation meetings to elicit tribal 

input.

In 2013, the Department of Commerce finalized its tribal consultation and coordination 

policy, which establishes how the Department works with federally recognized tribes. The 

policy allows the Department to capitalize on the immense value tribal consultation brings 

to the decision-making process. While the consultation process was valuable in the leadup to the 2010 Census, it was clear the Census Bureau needed more time to prepare. The 

Census Bureau began the tribal consultation process two years earlier this time.

No other department rivals the reach, depth, and breadth of the Department of Commerce 

data programs. Census data affect policymaking at all levels and have the power to move 

markets. The decennial census is the largest civilian mobilization effort in the nation and 

a constitutional requirement. In 2020, the Census Bureau will have a few short months to 

count the over 320 million people in the United States. The Census Bureau needs help 

from tribes to serve Indian Country better and gather accurate information from AIAN 

communities. The Census Bureau needs to hear tribal concerns and suggestions and needs 

tribal governments to encourage their citizens to respond to the census.

Overview of the Agenda

Dee Alexander 

Ms. Alexander is a citizen of Cheyenne and Arapaho Tribes. Her role with the Census 

Bureau is to help with tribal consultation work and any tribal concerns reported to the 

Office of Congressional and Intergovernmental Affairs.

This is the second round of tribal consultations leading up to the 2020 Census. From 

the fall 2015 through the spring 2016, the Census Bureau held an initial round of tribal 
Navajo Nation Consultation Final Report: Appendix C • 25

consultations that comprised eight tribal consultations and a national webinar for tribes. As 

part of the second round of consultations, this consultation is the second of nine scheduled 

for the fall 2016.

Ms. Alexander will email a meeting summary to Arbin Mitchell two to three weeks after the 

tribal consultation, to be shared with other attendees. Recommendations and requests from 

the Navajo Nation will be reflected in the meeting notes. The Census Bureau will review the 

items and report back to the Navajo Nation on them. The Census Bureau will submit a final 

report on the Navajo Nation consultation to Mr. Mitchell in late 2016.

Data dissemination and partnership specialists can help tribal delegates pull the numbers 

they need from census data. Amadeo Shije and Fred Stevens can work with the Navajo 

Nation on this if needed.

Ms. Alexander reviewed the goals and objectives of the consultation and then provided an 

overview of the day’s agenda. The Census Bureau asks for tribal input on agenda items, 

to which Mr. Mitchell recommended a discussion on residence rules. This agenda item is 

unique to the Navajo Nation tribal consultation.

Goals and Objectives

The goals of the tribal consultation are to:

u create open, two-way communication between the Navajo Nation and the Census 

Bureau;

u collect input on effective ways to implement specific programmatic and operational 

activities;

u record and address outcomes, issues, and recommendations; and

u clarify Census Bureau programs and activities related to the 2020 Census.

PRESENTATIONS AND DISCUSSION

Navajo Nation and Census Bureau Staff Introductions

Norbert Nez

Mr. Nez is a CIC coordinator and census liaison who assists Mr. Mitchell in organizing 

census-related events and sharing information about the census through other channels.

Because Mr. Nez worked as an enumerator for the 1990 Census, he has witnessed, firsthand, the challenges related to enumeration.

Arbin Mitchell

Mr. Mitchell was a census manager for the 2000 Census and a liaison for the 2010 Census.

His role is to make sure the executive branch of the Navajo Nation government is wellinformed about the 2020 Census moving forward. The Navajo Nation has plenty of capable 

people who could work for the Census Bureau.
26 • UNITED STATES CENSUS BUREAU 

Navajo lands contain many structures that are vacant because they are ceremonial houses.

Ceremonial houses were included in the housing count in the 2000 Census. When the 

Navajo Nation applied for housing funds, they were asked why they were not using what 

appeared to be vacant housing on Navajo land. In the 2010 Census, the Navajo Nation did 

not include ceremonial housing in the housing count, and Mr. Mitchell recommended that 

this approach be retained for the 2020 Census.

Perry Riggs

The Navajo Nation Office of the President and Vice President uses census data as 

justification when requesting more appropriations or justifying certain legislation.

Beatrice Watchman

For the past several years, the Navajo Nation Division of Economic Development has been 

unable to update the Comprehensive Economic Development Strategy (CEDS) document, 

despite frequent inquiries for these data from other departments. The division needs 

updated data to do this. Much of the data they have is inconsistent. For example, census 

data indicate the Navajo Nation’s unemployment rate is 19 percent, but that is not the case.

Roxanne Gorman

Ms. Gorman works with TANF recipients. Census numbers are used to determine the 

Navajo Nation’s unemployment rate, which the Department for Self Reliance uses to set 

caps on the length of time a family can receive TANF. The Department for Self Reliance 

serves all populations residing within the reservation, as well as enrolled Navajo Nation 

constituents living in Gallup or Farmington, NM, and other towns bordering the reservation.

The department needs accurate data on these populations to plan effectively. To promote

an accurate count, it is important for divisions of the Navajo Nation government to raise 

awareness of the importance of the census.

Lauren Bernally

In 2010, the Human Rights Office was authorized to redistrict. Census data are important 

in drawing the redistricting lines. It is important that the Census Bureau consider and make 

a decision on the resolution from the Eastern Navajo Land Commission. As districts are 

drawn, it is crucial to make sure lines are clearly defined. In some cases, the redistricting 

authority does not conform precinct lines with the existing census block, meaning the 

precinct line will bisect the block and assign the population of one census block to different 

sides of the precinct boundaries. Utah, for example, drew precincts that bisect Navajo 

Nation census blocks, which worked to the Navajo Nation’s disadvantage. Accuracy at 

the level of a .1 percent deviation is important because this determines voting strength in 

state, county, and school board elections. Existing lines dilute the Navajo Nation’s voting 

strength. The Human Rights Office requests that the Census Bureau generate GPS location 

data for residents.
Navajo Nation Consultation Final Report: Appendix C • 27

Ryan James 

Mr. James recently attended a meeting where northern chapters of the Navajo Nation were 

still disputing the changed enumeration lines. The Office of Natural Resources deals with 

boundary situations and fee lands. In the New Mexico portion of the Navajo Nation, many 

tribal citizens reside on fee lands. This may be one reason for the 2010 undercount. The 

Office of Natural Resources can assist the Census Bureau in making any boundary changes 

requested by the Navajo Nation.

Virgil Pablo 

The Navajo Nation Division of Social Services provides a wide spectrum of social services 

to a large land base. The division serves eligible individuals at the grassroots and local 

levels, not only with the Navajo Nation, but in other areas—for example, the Canoncito 

Band of Navajo near Albuquerque, NM. When the division submits proposals, accurate 

data are crucial. The division could provide advice to assist with gathering accurate data.

Mr. Pablo expressed appreciation for the Census Bureau’s interest in consulting with the 

Navajo Nation and Indian Country.

Carl Slater

Mr. Slater attended the tribal consultation to learn more about transportation components

that could be involved in conducting the 2020 Census.

K. Evan Moffett

Currently, Mr. Moffett works with others at Census Bureau headquarters to plan geographic

operations and the address list update for the 2020 Census. He also works to help ensure 

that the Census Bureau plans the appropriate approaches for enumeration and nonresponse follow-up.

Vince Osier

The Geographic Standards, Criteria, and Quality Branch of the Census Bureau’s Geography 

Division works on developing block algorithms for defining census blocks. Mr. Osier is 

interested in learning more from the Navajo Nation about chapter boundaries and trust 

lands.

Larry Rodgers

Mr. Rodgers has been involved with the decennial census since the 1990 Census. In 

response to the Census Bureau’s encouragement to create a Tribal Complete Count 

Committee (TCCC), the Navajo Nation created the Complete Count Commission, which 

included five Navajo delegates.

The 2000 Census Complete Count Commission comprised 10 members, including Mr.

Rodgers. At that time, the Census Bureau did not fully acknowledge Navajo sub-geography.

The Navajo Nation led efforts in helping the Census Bureau work with tribes to understand 

tribal sub-geography. Collecting data for Navajo Nation sub-geography means tabulating 

data for 110 chapters, which combine to form districts. Districts combine to form agencies, 
28 • UNITED STATES CENSUS BUREAU 

and the five agencies form the Navajo Nation as a whole. Data are needed for each of these 

geographic levels.

Mr. Rodgers worked as a statistician for the Navajo Nation for over 10 years. When he 

began, little information on the Navajo Nation was publicly available. During his time as 

a statistician, he ensured Navajo Nation data were published and widely distributed to 

all departments of the Navajo Nation government. The data products published included 

demographic profiles of each chapter.

The Navajo Nation did not form a TCCC for the 2010 Census due to internal conflicts that 

prevented a focus on the census. This could be one reason for what seems to have been 

an undercount in 2010. For the first time in Navajo history, 2010 Census data indicated the 

Navajo Nation had lost population. While many had moved off the reservation, Mr. Rodgers 

expressed his belief that this was not an exodus of constituents, but a case of people 

being missed during enumeration. It is important for the Navajo Nation to work toward a 

successful 2020 Census, especially since the 2010 Census did not receive proper attention 

from the Navajo Nation and seems to have produced inaccurate data.

One of his main concerns is that the numbers reported to the nation do not include Navajo 

constituents living on non-trust lands. Twenty-three Navajo families live on Bureau of Land 

Management lands, 127 families live on state lands, and others live on fee and private 

lands. These households are not counted as part of Navajo Nation.

Portions of the land within the 31 chapters of Eastern Navajo Agency are Navajo land, 

but are not considered to be part of the reservation. Socially, this distinction traumatically 

affected those living in this agency. Other Navajo used to call these people “outsiders,” and 

ENA residents internalized this concept. This distinction, as well as distinctions like “Utah 

Navajo,” HPL, and NPL, result from the way the land is divided. This is the doing of the 

federal government over time, and it needs to be unified.

The resolution from the Eastern Navajo Land Commission recommends that the Census 

Bureau tabulate the ENA as a collective base of all land contained within the 31 chapters.

The Navajo Nation serves as the governmental entity for these areas. It is important 

that tabulations for all 110 chapters are attributed to the Navajo Nation as a whole. The 

resolution, which resulted from the Navajo Nation’s meeting with Director Thompson, 

intends to unify the counting of Navajo people. Mr. Rodgers thanked Director Thompson for 

meeting with the Navajo Nation the previous fall and listening to and considering this issue.

Overview of Planning for the 2020 Census

Deborah Stempowski

The purpose of the decennial census is to conduct a census of the population and housing 

and disseminate the results to the President of the United States, the states, and the 

American people. The attendees of this consultation are already well-versed in the uses of 

census data, such as justification for funding.
Navajo Nation Consultation Final Report: Appendix C • 29

The Census Bureau learned from the consultations leading up to the 2010 Census that 

tribal consultations needed to occur earlier in the decade, before decisions begin to be 

made. The Census Bureau began consulting with tribes two years earlier this time, in 2015.

Round 1 of the 2020 Census tribal consultations included eight consultations from October 

2015 to March 2016 with a national webinar in April 2016. The Census Bureau has already 

begun to implement much of the insight received during Round 1. Some of the lessons 

learned so far include the Internet connectivity challenges on many tribal lands and the 

importance of hiring local enumerators.

Current Progress

The Census Bureau is currently transitioning from the research and testing phase of 

planning into the operational phases. Last fall, the Census Bureau released its Operational 

Plan, which is a high-level view of planning efforts. Currently, the Census Bureau is revising 

the plan based on research findings from the past year. The Operational Plan1 is available 

online.

The Census Bureau released the Census Memorandum2 Series, which documents 

significant decisions, actions, and accomplishments. The series is posted on the Census 

Bureau website. In 2015, the Census Bureau posted a Federal Register Notice on the 2010 

Census residence criteria and, in February 2016, published the proposed 2020 Census 

residence criteria, which was open for a 60-day comment period. The Census Bureau 

also kicked off the 2020 Census Redistricting Data Program in December 2015, which will 

continue through 2016.

Goals

The goal of the census is to count everyone once, only once, and in the right place. The 

Census Bureau aims to conduct the 2020 Census at a lower cost per housing unit than the 

2010 Census, while achieving high quality data.

Key Innovation Areas

The Census Bureau will achieve a lower cost by focusing on four key innovation areas, 

which are:

u reengineering address canvassing,

u optimizing self-response,

u using administrative records and third-party data, and

u reengineering field operations.

1 The Operational Plan is available at http://www.census.gov/programs-surveys/decennial-census/2020-census/

planning-management/planning-docs/operational-plan.html

2 View the Census Memorandum Series at http://www.census.gov/programs-surveys/decennial-census/2020-census/planning-management/memo-series.html
30 • UNITED STATES CENSUS BUREAU 

Counting the nation’s population involves four high-level foundational tasks, which are:

u establish where to count,

u motivate people to respond,

u count the population, and

u tabulate and release the results.

Establish Where to Count

This task involves identifying all addresses where people live or could live. In 2010, Census 

Bureau staff updated and verified the address list in conjunction with the count. For the 

2020 Census, the Census Bureau will again conduct a 100 percent review and update of 

the address list, but will approach it differently, using in-office review alongside the infield review. In-office review includes obtaining information from sources, such as the U.S.

Postal Service, imagery, commercial databases, and other private sector sources and files 

provided to the Census Bureau.

Motivate People to Respond

The Census Bureau will maximize outreach using traditional and new media, target 

advertisements to specific audiences, and work with trusted voices to share messages.

Tribal government liaisons are key in communicating to tribal communities.

Count the Population

For the 2020 Census, those who can respond online will be encouraged to do so. Paper 

questionnaire and telephone response options will also be available. Providing more 

options for self-response means fewer enumerators will need to go out on the ground.

Tabulate and Release the Results

After the count is complete, the Census Bureau will process the results and provide them 

to the President of the United States for apportionment counts by December 31, 2020. The 

data will be published for others to use.

Future Planning Steps

Ms. Stempowski provided a high-level overview of what needs to happen next. Some key 

benchmarks include the following.

u Topics that will be covered in the census must be submitted to Congress by April 1, 

2017.

u Invitations for the Local Update of Census Addresses will be sent in 2017.

u An end-to-end test will be conducted in 2018.

u Precise wording of the census questions is due to Congress by April 1, 2018.

u The partnership program will launch in 2019.

u Formation of TCCCs should be completed in 2019.
Navajo Nation Consultation Final Report: Appendix C • 31

u Advertising begins in early 2020.

u Census Day is April 1, 2020.

u Apportionment counts must be submitted to the President of the United States by 

December 31, 2020.

u Redistricting counts will be submitted to the states by March 31, 2021.

Geography Discussion

Census Bureau Presentation

Vince Osier

Aside from planning, geography is the first part of the 2020 Census cycle. It is important to 

ask where the data are needed for. Geographic-area boundaries are important in tabulating 

census data. For example, data are tabulated for populations within reservation boundaries, 

but nearby, off-reservation housing in which tribal citizens may live is not tabulated as part 

of the reservation. Other geographic features, such as roads and housing unit locations, 

also affect how data are tabulated. Without local knowledge, geography lacks value.

The Census Bureau works directly with tribes to get updated boundaries to ensure 

reservation populations are tabulated accurately. To do this, the Census Bureau asks tribes 

to review maps created by the Census Bureau from the geographic database, and tribes 

send any updates to the Census Bureau to be reflected in the database.

The Census Bureau will talk to or visit tribes at any time to work with them on geography 

issues.

Geographic Areas

Geographic areas for which the Census Bureau tabulates data include legal and statistical 

areas.

Legal Areas

For tribes, legal areas include reservations, off-reservation trust lands, and tribal 

subdivisions (Navajo chapters are considered tribal subdivisions). The Census Bureau 

recognizes the importance of and would like to receive updated chapter boundaries from 

the Navajo Nation, but understands that boundaries need to be resolved internally first. Mr.

Osier requested that the Navajo Nation notify the Census Bureau if they can help facilitate 

internally defining chapter boundaries.

Statistical Areas

Statistical geography includes Census Designated Places (CDPs) and Tribal Designated 

Statistical Areas (TDSAs). A statistical area could be designated to tabulate data for an 

unincorporated community or a concentrated population. Tribal tracts and block groups 

nest within the reservation boundaries and therefore ignore county and state boundaries.
32 • UNITED STATES CENSUS BUREAU 

The Census Bureau has attempted to pursue the mapping of restricted fee lands, but there 

is no clear definition on what these lands are. Many tribes have expressed resistance to 

mapping fee lands since it is an internal tribal responsibility that the Census Bureau should 

not need to track fee land information. After Larry Rodgers raised this issue in the lead-up 

to the 2010 Census, the Census Bureau restructured the database to accommodate data 

on fee lands, but the data cannot be obtained.

Geography Programs

The Boundary Annexation Survey (BAS) defines legal boundaries for all governments. The 

BAS is done annually for tribes and entails an update and review of maps. The Census 

Bureau sends an invitation to tribes every December to participate in the BAS.

CDPs can be defined within a reservation or off-reservation for a small community or 

condensed population. The program through which CDPs can be defined is the Participant 

Statistical Areas Program (PSAP). The Census Bureau will begin communicating with 

governments about this in early 2018.

The Local Update of Census Addresses (LUCA) program asks tribes to review the Census 

Bureau address list and indicate where addresses are located on tribal lands. Knowing the 

amount and location of units that need to be enumerated before enumeration begins is 

valuable in ensuring an accurate count. The Census Bureau will invite tribes to participate 

in LUCA in the summer 2017.

Discussion and Tribal Input

Vince Osier

Does the Navajo Nation use data from the Census Bureau’s tribal statistical geographic 

areas, such as CDPs or TDSAs? Does the Navajo Nation use tribal census tracts or 

standard census tracts?

Larry Rodgers

When it comes to dealing with outside entities, the Navajo Nation commonly uses standard 

census tracts. For internal Navajo Nation use, standard census tracts rarely play a role.

Census blocks are important geographies because they are supposed to match up with 

Navajo Nation chapters.

Vince Osier

Are there geographic areas or other types of geographic data that the Census Bureau does 

not currently provide that would be helpful to the Navajo Nation? The Census Bureau has 

received several requests from other tribes to tabulate data for tribal service areas near 

reservations.
Navajo Nation Consultation Final Report: Appendix C • 33

K. Evan Moffett

The Census Bureau released a detailed operational plan for LUCA3 a few weeks ago.

It provides insight into the schedule and how the Census Bureau will interact with 

governments to update the address list.

Lauren Bernally

Did the Census Bureau work with the Navajo Nation on LUCA for the last census? Who has 

that information, and can the Navajo Nation see it?

Arbin Mitchell

It was given back to the Census Bureau as required by Title 13. Tribal officials reviewed and 

confirmed the information and signed a confidentiality agreement.

Director Thompson 

One of the biggest complaints the Census Bureau receives about LUCA is that the Census 

Bureau gives governments the address information for them to update and return to the 

Census Bureau. But, the governments have to sign a confidentiality agreement stating they 

will not keep the address list.

Lauren Bernally

Issues concerning redistricting make this problematic. The tribe has to duplicate the work 

of counting people and identifying their locations for its own reference. The block-level 

counts the Census Bureau provided cannot be used for redistricting due to inaccuracies.

K. Evan Moffett 

LUCA provides the opportunity to review and provide feedback on the Census Bureau’s 

address list so the Census Bureau can update it in preparation for enumeration. If 

the Census Bureau sees discrepancies in the address information, it will provide that 

information to the tribal government, which can appeal it.

Cathy Lacy

For the 2010 Census, the Census Bureau enumerated the Navajo Nation through a process 

called Update/Enumerate, meaning Census Bureau staff update the list while knocking on 

doors to conduct in-person enumeration. The Census Bureau will enumerate the Navajo 

Nation in the same way for the 2020 Census unless the Navajo Nation requests otherwise.

Larry Rodgers

Updating the address list through LUCA provides a blueprint to follow so enumerators know 

where to go.

3 To view the operational plan for LUCA, visit http://www.census.gov/programs-surveys/decennial-census/2020-census/planning-management/planning-docs/LUCA-detailed-op-plan.html
34 • UNITED STATES CENSUS BUREAU 

K. Evan Moffett 

Getting the boundaries right is critical to tabulating data. If the Census Bureau correctly 

identifies boundaries through activities such as LUCA, housing units are assigned to the 

correct geography during enumeration, which leads to correctly tabulated data. LUCA 

provides tribes with the opportunity to notify the Census Bureau if it does not have housing 

reflected within the right boundaries. The Census Bureau will build an address list for 

Navajo lands based on the boundary information provided by the Navajo Nation.

Arbin Mitchell

The Navajo Nation chapters do not have official boundaries. Because different maps show 

different chapter lines, the Navajo Nation has a land use plan.

Cathy Lacy 

When the Census Bureau previously visited the Navajo Nation, the tribe was working on 

address descriptions for 911 addressing.

Arbin Mitchell

Some chapters on the New Mexico side of the reservation have completed the 911 

addressing. The New Mexico legislators set aside funding to help complete the address 

descriptions. Funding constraints have slowed this effort on the Arizona side. Funding in 

the upcoming Navajo Nation budget was put aside to do rural addressing.

Cathy Lacy

The Census Bureau will have address descriptions from the Navajo Nation, but may 

not have city-style addressing. Ms. Lacy asked Mr. Moffett to further describe how this 

situation will be handled.

K. Evan Moffett 

The challenge is matching the city-style addresses with those formerly listed as location 

descriptions, for example, matching “tan trailer” to 101 Main Street. The Census Bureau 

and Navajo Nation need to collaborate on this task. If the Navajo Nation can provide 

coordinates for structures, the Census Bureau can match the description with the address 

to improve the address list.

Larry Rodgers

What happened to the coordinates recorded during the last census? If the Census Bureau 

sends the coordinates to the Navajo Nation, that will help in determining where structures 

are situated. Currently, these data would only be captured within reservation boundaries. It 

needs to be captured for chapter boundaries, as well as for fee lands and BLM lands where 

Navajo citizens reside.
Navajo Nation Consultation Final Report: Appendix C • 35

Vince Osier

The Census Bureau can move forward with this once the Navajo Nation reaches an 

agreement on chapter boundaries.

Larry Rodgers

The addressing is sporadic and uncomprehensive. Addressing for the Utah portion of the 

Navajo Reservation was done by San Juan County as early as 2000. The county does 

the addressing in the checkerboard area, but the Navajo Nation and the county have not 

collaborated on this. McKinley and San Juan Counties have already done a lot of work on 

rural addressing; the Census Bureau should coordinate with these counties to obtain this 

information and overlay it with the Navajo Nation’s address information. The Census Bureau 

can address any discrepancies in-field.

Norbert Nez

Over 10 thousand point locations have been collected for rural addressing within the 

Navajo Nation. The collection progress has depended on how much effort the chapters are 

willing to contribute. A handful of chapters have collected a lot of housing information with 

corresponding GPS coordinates that are reflected in a database controlled by the Navajo 

Nation. How many of those locations have been converted to street-style addresses is 

unknown. Assigning addresses has only been done in a few locations, as these efforts are 

just beginning. Those working on Navajo rural addressing should coordinate with LUCA.

M.C. Baldwin, the rural addressing coordinator for the Navajo Nation, is involved in piloting 

the rural addressing project and figuring out how to compare the results with the Census 

Bureau’s information.

Coordinates were not collected for ceremonial houses, only for locations where people live 

or for structures that are considered inhabitable.

K. Evan Moffett 

The Census Bureau has access to aerial imagery for the Navajo Nation. In 2010, the 

Census Bureau conducted full address canvassing and hired locals to list all addresses.

This information, along with past and current imagery, will be used to determine what has 

changed in the landscape. This technology will not work everywhere, so the Census Bureau 

will send out field staff, as well. LUCA will help build an accurate address list, which will 

reduce the number of field staff needed for enumeration.

Larry Rodgers

Has the Census Bureau considered using drones to obtain aerial imagery for some 

locations?
36 • UNITED STATES CENSUS BUREAU 

Vince Osier

The U.S. territories have been using drones for aerial imagery in preparation to count 

residents, but the Census Bureau has not.

Director Thompson 

The Census Bureau is watching the private sector. If the private sector develops technology 

like this, the Census Bureau may choose to use this type of technology, but will not actually 

develop it.

Enumeration Discussion

K. Evan Moffett

To count everyone, the Census Bureau must ensure all housing units are identified, 

mapped, and have locations assigned to them correctly. The Census Bureau needs the 

Navajo Nation’s help in this. The Navajo Nation can help by participating in BAS, PSAP, or 

LUCA; sharing data with the Census Bureau; recruiting local staff; and helping find places 

to train staff. A strong partnership between the Census Bureau and the Navajo Nation will 

be important because there are many challenges to achieving an accurate count. A few 

nationwide challenges to enumeration include:

u an increasingly diverse population, 

u distrust of the federal government, 

u complex living situations, and

u the constrained fiscal environment within which all governments operate.

In 2010, the Census Bureau conducted an accurate count of AIANs living off-reservation.

There was an estimated 4 percent undercount for AIANs living on tribal lands.

Four response options will be available for the 2020 Census:

u self-response using the Internet,

u telephone, 

u paper questionnaire, and

u traditional enumeration through a field interviewer.

The Census Bureau plans to use in-person enumeration for the Navajo Nation unless asked 

to do otherwise. How can the Census Bureau ensure every person within a household is 

counted, especially if more than one family or multiple generations are living in one home? 

Is this an issue within the Navajo Nation?

Arbin Mitchell

Public awareness is important. Some housing on the Navajo Nation is funded under the 

Native American Housing and Self-Determination Act. When one family receives this 
Navajo Nation Consultation Final Report: Appendix C • 37

funding and has other families living there, they may not disclose information about the 

other families due to a fear of being evicted. It is possible that recipients of TANF or welfare 

may not share information that may make them ineligible to continue receiving assistance.

Public awareness needs to be raised that this information will not be shared with anyone.

Roxanne Gorman

The Department of Self Reliance works with many low-income households who cannot 

afford Internet access. How does the Census Bureau determine who is invited to respond 

online versus who is invited to respond via one of the other response options?

K. Evan Moffett

For addresses at which residents can receive mail, the Census Bureau will mail a postcard 

that includes a web link and a phone number so the recipient can respond in one of those 

ways. The Census Bureau may decide to mail a paper questionnaire to a certain household 

or groups of households—for example, to a neighborhood or community where it is known 

that citizens do not have Internet access. Further, the Census Bureau will advertise about 

the different ways people can participate.

Director Thompson 

Through offering an online response option for the ACS, the Census Bureau has gathered 

data on areas where people tend to refrain from responding online. About 20 percent of the 

areas that used to receive paper questionnaires in the mail will receive paper questionnaires 

in 2020. Most of these areas will now be invited to respond online. In previous censuses, 

responding over the telephone was not an option. In areas like Navajo Nation, where 

mailing paper questionnaires is not feasible, the Census Bureau needs to work with the 

local governments to decide how to enumerate that population. A lot of Indian reservations 

think that Update/Enumerate is the best approach to enumeration, so the Census Bureau 

will continue to do that for places like the Navajo Nation where this approach makes the 

most sense.

Roxanne Gorman

Ms. Gorman is aware of living situations in which five generations of a family reside at one 

address. Within that residence, some people may be savvy with computers, while others 

may not. Different generations within the same household may have different preferences 

for how to respond. How does the Census Bureau encourage all residents to respond in 

whatever way they are comfortable? 

Director Thompson

For the Navajo Nation, the Census Bureau will send enumerators door-to-door. However, 

the scenario of multiple generations living in one residence does occur in off-reservation 

living situations, so the Census Bureau will need to spread the word that the census is 

completely confidential to encourage these households to report all residents.
38 • UNITED STATES CENSUS BUREAU 

Roxanne Gorman

Often, the census is not a top priority for many people because they may not fully 

comprehend its purpose. How should the Department for Self Reliance begin preparing to 

inform those it serves about the census? 

Perry Riggs

If someone lives on the Navajo Reservation and receives a form or responds online, how 

would that person connect to their household location on the reservation? For example, if 

someone responds online while at work, how is that person connected to his or her home 

address?

K. Evan Moffett

The Census Bureau asks for the person’s name and address and a roster of who else lives 

at that address. The address is then matched to the address list.

Perry Riggs

What if the residence does not have a typical address?

Director Thompson

There is a process where the respondent can pinpoint the location of his or her residence 

on a map. This method is more difficult to tabulate, but the Census Bureau has a process 

for eliminating duplicate responses.

Norbert Nez

The Navajo Nation has found that having people pinpoint locations on an aerial map is 

problematic because people are always off when it comes to finding points or knowing 

where they are. They may say, “I recognize this point, so this person lives over here,” when 

the person actually lives on the other side of the reference point.

Director Thompson

Hopefully, a person in the Navajo Nation would not be counted this way. If a person saw an

ad about the different ways to respond and wanted to respond online, they might do so, but 

the Census Bureau will knock on doors and enumerate the Navajo Nation in person.

Lauren Bernally

Using in-person enumeration as the primary approach to counting the Navajo Nation is 

needed. The mail-in option does not work well for voter registration, so it would not work 

well for the census. Post offices on the reservation are only open 2 hours a day and it takes 

a long time to travel to them, so mailing a questionnaire back to the Census Bureau would 

be difficult for many.
Navajo Nation Consultation Final Report: Appendix C • 39

Roxanne Gorman

People are not always readily available to answer their doors or to take a few minutes to 

respond at that moment. How many times does the Census Bureau stop at each residence? 

K. Evan Moffett 

Six.

Arbin Mitchell

If the resident is not home on the sixth visit, the enumerator may talk to the neighbor and 

ask how many people live there.

K. Evan Moffett 

It sounds like the Internet is not a good response option for the census. Would tribal 

citizens be willing to contact a census telephone center to complete their census 

questionnaires over the phone? 

Lauren Bernally

The landlines are limited. People pay for cell phone services by purchasing minutes and 

would rather reserve these minutes for talking to family. They will probably not call in to 

complete a questionnaire.

Perry Riggs

Cell phone coverage is not good in some areas. Only a handful of people would respond 

this way.

Larry Rodgers

It is best to have many options for responding. Mr. Rodgers expressed that he would 

prefer to use the Internet, but acknowledged that not everyone in the Navajo Nation would 

share his preference. Though in-person enumeration should be the primary enumeration 

approach for the Navajo Nation, the option to respond online should be left open for Navajo 

constituents who would like to do so. The Navajo Nation needs to be open to Internet 

response on the premise that it is time to catch up with modern technology. Perhaps the

Census Bureau could send out a postcard in advance of the census that notifies them 

about when the census will occur and lists the response options. The postcard could ask 

people to reply to the Census Bureau with their response preferences or could include a 

code they can key in should they choose to respond online.

Norbert Nez

There are other federal agencies who collect metadata from cell phones. GPS data are 

a form of metadata that could be collected. If they are willing to share that information, 

could the Census Bureau use it as a way to see where people reside? A few years ago, 70 

percent of the Navajo Nation owned cell phones, and the percentage is probably higher 

now.
40 • UNITED STATES CENSUS BUREAU 

Director Thompson 

Others have made that recommendation, but the Census Bureau cannot access cell phone 

data because that information is private. Aggregate cell phone data can only be used 

to start to understand the population, for example, by looking at patterns of cell phone 

movement over time.

Larry Rodgers

In-person enumeration needs to be done in HPLs where Navajo constituents still live. Even 

though enumerators who visit these households will be working under Hopi jurisdiction, a 

Navajo enumerator should be hired for that particular area.

Cathy Lacy 

For the 2010 Census, the Census Bureau hired a Hopi enumerator and a Navajo enumerator 

who worked as a team. This effort worked well and will likely be repeated for the 2020 

Census.

K. Evan Moffett 

Mr. Moffett summarized what was discussed: The Census Bureau will use Update/

Enumerate as the primary approach to counting the Navajo Nation and will offer Internet 

and phone response options for those who would like to respond that way.

Residence Rules Discussion

Norbert Nez

The Navajo Nation has been examining population data, particularly data on age groups.

When the 2010 Census results were published, Mr. Nez examined the age breakdown of

each chapter. He found a consistent dip of residents in the 18 to 21 age range. This is likely 

because there are few higher education options on the Navajo Reservation. Most college 

students leave the reservation to attain education, even though they often return for the 

summers and after commencement. Navajo college students are usually counted where 

they attend college, which skews the numbers and makes it difficult for the Navajo Nation 

to justify increased funding for education needs on the reservation, like BIA scholarships 

or internship programs in which the students can participate when they return to the 

reservation in the summer. Mr. Nez requested that a residence rule similar to the one 

that counts overseas military personnel as stateside be considered for Native American 

students. Other tribes may face similar situations. Counting students who live in boarding 

school or university housing as living in their home communities helps count them where 

they should be, since student housing is a temporary living situation.

Prisoners should be considered in a similar way. There are no prisons on the Navajo Nation, 

only jails. When Navajo residents go to prison, they almost always leave the reservation.

Even though this is a temporary living arrangement, they are counted at the prison, 

elsewhere from their hometown.
Navajo Nation Consultation Final Report: Appendix C • 41

Director Thompson 

The Census Bureau has been examining its residence criteria and recently published the 

2010 Census criteria for comment. In June 2016, the Census Bureau published proposed 

residence rules for 2020 and received around 78 thousand comments, most of which 

involved the counting of prisoners at their pre-incarceration residences. The Census Bureau 

is evaluating that possibility. The Census Bureau has counted college students at their 

college residences since 1950.

The residence rule goes back to Census Act of 1790, which states that the Census 

Bureau must count people at their usual abode even if they are temporarily absent. The 

determinant of a usual abode is where people usually live and sleep as of Census Day. In

1970, the Census Bureau decided to start counting overseas military as residing stateside.

The residence rules have not changed as a result of legislation, but in how they are 

interpreted or implemented by the Census Bureau. Lawsuits over the years have framed 

how the Census Bureau determines where people are counted. The Census Bureau can 

decide to count prisoners either way—at the prison or at their permanent homes—as long 

as the decision is not arbitrary or capricious.

Mark Helfritz

The Census Bureau does count boarding school students at their homes, but not college 

students.

Norbert Nez

What is the likelihood of having exceptions made for tribes as far as counting college 

students at their permanent homes? States are not as affected as tribes are by losing the 

college student count. Colleges are fairly evenly distributed across states, so an imbalance 

does not usually occur if one state sends a student to another state. For tribes, most 

students are sent off of reservations and none are sent to the reservation from other areas.

Director Thompson 

This is the first time the issue of college students from reservations has been brought to the 

Census Bureau’s attention. Director Thompson will consider Mr. Nez’s comments and follow 

up.

Lauren Bernally

Per Navajo tradition, a person’s umbilical cord is buried where he or she lives. This tradition 

applies to elected officials—they run for office in an area where they can claim to live 

because of their umbilical cord being buried there—so this is how the Navajo should be 

counted.
42 • UNITED STATES CENSUS BUREAU 

Roxanne Gorman

The Office of Navajo Nation Scholarship and Financial Assistance, for which Ms. Gorman 

used to work, saw a large number of college students leave for off-reservation schools.

It seems likely that the schools and communities where they reside benefit from that 

increased population. Director Thompson mentioned lawsuits about where to count 

prisoners and said that the Census Bureau was upheld. Does that mean that prisoners will 

now be counted where they resided pre-incarceration?

Director Thompson 

No, the Census Bureau has counted prisoners at the prisons for a long time and was 

challenged over this interpretation by the District of Columbia. Because the District of 

Columbia prison was in Virginia, the prisoners were counted as residing in Virginia rather 

than in the District. The Census Bureau was upheld, but the case did not set a legal 

precedent for where to count prisoners. Because the process of counting the prisoners 

was not arbitrary, the Supreme Court ruled that the Census Bureau is entitled to make the 

decision about where to count prisoners. The case did not evaluate the language of the 

Census Act and how it should be interpreted, but whether the Census Bureau administered 

it arbitrarily.

Perry Riggs

Is there a question on the form that asks whether a person resides at a certain address? 

Director Thompson 

The form asks, “Do you usually live and sleep here?”

Perry Riggs

Many Navajo who live off the reservation have home site leases or properties on Navajo 

lands. Most of them plan to return. Can it be measured how many have home site leases or 

properties on the reservation?

Director Thompson 

The Census Bureau only collects data on how many people identify as Navajo and where 

those people report living. There is no way to measure intention.

Tim Olson 

The Census Bureau uses Census Day as a reference for where the person usually lives and 

sleeps as of that day.

Albert Fontenot

Instead of asking respondents to write in an address, the census presents the address 

associated with that residence on the Census Bureau address list and asks, “Is this the 

address where you live and sleep?”
Navajo Nation Consultation Final Report: Appendix C • 43

Lauren Bernally

How would a different reference date skew the data? Different dates could see different 

trends, such as snowbirds leaving for the winter and students returning home for the 

summer.

Tim Olson 

The reference date is always April 1.

Norbert Nez

In the Navajo Nation’s previous meeting with the Census Bureau, the Navajo Nation 

recommended that the census capture chapter data for those who identify as Navajo, 

possibly through a chapter affiliation box where the respondent can write in his or her 

chapter name. What is the status on this?

Director Thompson 

There will be a write-in space on the census form. If the Navajo are notified that they should 

write their chapter in that space, the Census Bureau can capture and tabulate Navajo 

chapter data. The Census Bureau has expanded the amount of write-in information that can 

be captured. Since the Navajo Nation will be enumerated in-person, through an enumerator 

using a handheld device, this information can be easily captured.

Perry Riggs

Will enumerators be trained to include chapter information if it is reported by the 

respondent?

K. Evan Moffett 

Yes.

Norbert Nez

When enumerating those living on the reservation, chapter affiliation will likely be known 

based on which neighborhood the enumerator is in. It would be most useful to capture 

chapter information for people living outside the reservation, where chapter affiliation is less 

clear, especially for migrant workers and students. For some chapters, huge undercounts 

occur since the population doubles or triples over the weekend due to people who work 

offsite returning for the weekend.

Director Thompson 

The Census Bureau works on weekends and may be able to count these people at their 

homes this way.
44 • UNITED STATES CENSUS BUREAU 

Cathy Lacy

In a discussion between the Census Bureau and Navajo Nation leading up to the 2010 

Census, the tribe created a mock-up of a questionnaire that included an option to indicate 

the chapter.

Tim Olson 

The best way to successfully count Navajo living off-reservation and capture their chapter 

affiliations is for the tribal government to reach out to them individually, whether through a 

letter or email, about what the census form will look like and how they should complete it.

Roxanne Gorman

Promoting awareness is something the tribe should initiate. The Navajo Nation should reach 

out to college students and other populations.

Partnership and Job Recruitment Discussion

Census Bureau Presentation

Amadeo Shije

Partnership is key to the collection of complete, accurate data. The census relies on selfresponse, which is why tribal governments should reach out to tribal citizens and tell them 

why the census is important and how to respond.

The partnership program is intended to motivate community members toward greater 

participation in the census and to inform them about how to complete it correctly so the 

community is counted accurately.

Goals of the partnership program include:

u increase the self-response rate;

u ensure the best possible count of Navajo Nation tribal citizens; 

u support 2020 Census activities on and off tribal lands; and

u count everyone once, only once, and in the right place.

The 2020 American Indian Alaska Native Partnership Program is designed to promote 

the importance of a complete and accurate count to tribal populations through several 

approaches:

u the Tribal Governments Liaison Program,

u TCCCs, and

u partnership with Navajo Nation programs (partnership efforts include the Statistics 

in Schools program).
Navajo Nation Consultation Final Report: Appendix C • 45

Tribal Governments Liaison Program

It is important for tribal program managers and directors to support the tribal liaison. The 

tribal liaison communicates between the Census Bureau and the tribe, helps educate the 

community on the importance of the census, and motivates people to respond. The tribal 

liaison can help ensure enumeration is done at a good time. For example, if a census 

worker plans to visit the reservation, the liaison can notify that person if a ceremony or 

other conflict is occurring. The Denver Region has a protocol for enumerators to notify 

tribal administrative offices when they plan to enumerate tribal lands, ask permission to 

visit the reservation, and inquire about timing. Talking to the tribal liaison is a good place to 

start in notifying the tribe about planned in-person enumeration.

Tribal Complete Count Committees

A TCCC is a volunteer committee appointed by tribal leaders. TCCCs work to determine 

how to reach tribal citizens on and off the reservation and encourage them to respond to 

the census honestly and correctly.

TCCCs develop and implement an outreach plan to tribal constituents. Possible ways to get 

the word out about the census include radio stations, billboards, events, newsletters, news 

media, and special promotions, such as art contests (venues like the recent Navajo Nation 

fair are good forums for this). The Census Bureau will provide brochures and customizable 

materials that can be shared with community members at events.

Statistics in Schools Program

The Statistics in Schools program is one important way of getting the word out about the 

census. The best way to communicate an important message to parents is often by telling 

children how important it is. If children are told how census numbers can help secure 

funding for schools and community programs, they may share the information with their 

parents and tell them, “You need to complete the census for me.” Informing children also 

grooms the next generation to understand the importance of the census.

Partnership with Navajo Programs

As program managers and division directors, the people at the tribal consultation table have 

direct contact with tribal citizens and are important players in communicating to the tribe.

A few examples of potential partners include children, the elderly population, veterans, high 

school and college students, housing programs, community centers, and urban centers for 

AIANs living off-reservation. Partnership efforts will promote an improvement in the census 

data collected.

How can Census Bureau staff devoted to working with tribal governments most effectively 

improve participation in the 2020 Census? 

How does the Census Bureau build trust with the Navajo Nation? 
46 • UNITED STATES CENSUS BUREAU 

In what role do you, as a Navajo Nation tribal citizen, see yourself related to promoting the 

2020 Census? A simple, but effective way to spread the word is if one person makes a goal 

to tell five people who then tell five more people.

Arbin Mitchell

One thing the Navajo Nation has not yet done and needs to do is involve all tribal 

employees in sharing the message about the census. At peak times, the Navajo Nation 

government system employs 8 to 10 thousand people.

Amadeo Shije

Involving tribal employees would be a good effort. How would you do that? Through an 

event? During the 2010 Census, the tribal partnership specialist would often attend tribal 

events and get the word out that way. Tribal employees could be encouraged to promote 

awareness of the census through a reminder that it helps secure funds that may pay their 

salaries.

Roxanne Gorman

What exactly does the Census Bureau mean by “partnering with programs”? How would 

the Census Bureau make itself available for partnership this far in advance? Even though 

planning is done years in advance of the census, there is still a sense that the census is 

suddenly thrust upon the population. How far in advance can the process of partnering with 

programs begin?

Tim Olson 

Mr. Olson explained that he always asks program directors how they currently communicate 

with those they serve and whether those channels offer ways to add information about 

the census and its importance. For example, adding content about the census to a regular 

newsletter could be an option.

Roxanne Gorman

Will the Census Bureau provide that information to program managers?

Tim Olson 

The Census Bureau can provide a number of scripted items. Program managers are 

encouraged to tailor the scripts to their specific audiences. In 2018 and 2019, more of 

these items will become available and tribal partnership specialists will notify the Navajo 

Nation when the items are available. Because of this tribal consultation, the Navajo Nation 

has a chance to start thinking over the options, rather than having the Census Bureau 

approach them in the fall 2019 and ask for assistance. Mr. Olson encouraged attendees

to think about ways of promoting awareness and ask their colleagues and elected officials 

about their visions for reaching out to the community. He encouraged the group to form a 

TCCC and begin holding meetings to strategize outreach.
Navajo Nation Consultation Final Report: Appendix C • 47

Amadeo Shije 

When the time comes to increase outreach efforts, the Denver Region will approach 

program managers and division directors to request partnership and ask about the 

populations they serve. Divisions will not be asked to reach out to every tribal citizen, but to 

their particular service groups.

Roxanne Gorman

Mr. Mitchell influences a large number of Navajo Nation citizens. If the tribal government 

will be involved, it should do something to inspire pride. For example, during recent tribal 

elections, voters received a sticker that said, “I voted.” Even though divisions will need to 

promote awareness only to their constituents, division directors should also share the word 

with family members and friends on their own time.

The Department for Self Reliance creates newsletters and sends online notices to clients.

They need to obtain clearance for any language included in these communications, 

but once the information is cleared, there is much the department can do to promote 

awareness. Ms. Gorman requested specific information from the Census Bureau as soon 

as possible to ensure she can plan and implement an effective outreach plan for her 

department’s constituents. Navajo Nation leadership are the ones who need to put in 

writing the requests about residence rules for prisoners and college students. Mr. Mitchell

is in the position to take the lead and garner support from the tribal government.

Amadeo Shije 

The Navajo Nation should consider issuing a resolution signed off by the Navajo Nation 

president stating that the administration supports the census. That resolution would be a 

strong motivator for tribal citizens to participate. The Navajo Nation already has a resolution 

from the 2010 Census and would simply need to update and reissue it for next census.

Arbin Mitchell

For the 2010 Census, the Navajo Nation also got resolutions from each chapter. The

overarching resolution from the president happened first, and then each chapter created 

resolutions.

Larry Rodgers

Mr. Rodgers encouraged Ms. Gorman to be involved in a TCCC. The TCCC would have a

tribal liaison through whom it can communicate to the Census Bureau, and many resources, 

such as communication materials, are available. Each Navajo Nation division has a 

newsletter that could be used to promote awareness. Tying the census message in with an 

interesting news article in the newsletter would be a good approach. The Navajo Nation 

could attach a note to payroll check stubs encouraging tribal government employees to 

make sure they and their families are counted. Not all tribal employees are salaried through 

federal funding. One third of employees are salaried through the Navajo Nation. There 

are also IHS and BIA employees on the Navajo Nation—perhaps through partnership, a 

similar note could be attached to their pay stubs, as well. Tribal enterprises, like the Navajo 
48 • UNITED STATES CENSUS BUREAU 

Tribal Utility Authority, can communicate by running internal ads in the newsletter. The 

TCCC for the Navajo Nation has the potential to become political. Last time, half of the 

representatives were elected leaders. On the one hand, they pull the strings, but most of 

the quality ideas come from people like tribal employees.

Amadeo Shije 

The Census Bureau is currently drafting the Complete Count Handbook, which includes 

customizable scripts that can be used for outreach. The Census Bureau will notify the tribal 

consultation attendees as soon as these materials are available.

CLOSING REMARKS

Wrap-Up, Overview, Clarifications, and Next Steps

Larry Rodgers

The Eastern Navajo Land Agency is pleased that the Census Bureau is entertaining its 

resolution regarding the tabulation of the ENA. This is just the start of the dialogue between 

the Census Bureau and the Navajo Nation. More issues will be addressed in the next four 

years.

Ryan James

Navajo Nation politics can complicate census processes more than might be the case for 

smaller tribes. Tribal politics can affect the faith and trust of the Navajo people, positively 

for some, but negatively for others. In many ways, the trust of the federal aspect of the 

census is actually quite good within the Navajo Nation. Individuals need to know the 

census has nothing to do with tribal politics. For the 2020 Census, a better way of doing 

things is to put something permanent down on paper. In 1975, permanent boundaries 

were set for how to enumerate the Navajo Nation, but the boundaries have changed every 

decade. Something needs to be set in stone for what should be enumerated, until it actually 

needs to change. Chapters have boundaries for grazing areas, but there are no chapter 

boundaries. A lot of people look at census boundaries and say they do not match the 

grazing boundaries.

Roxanne Gorman

Ms. Gorman thanked the Census Bureau for traveling a long distance to bring important 

information to the Navajo Nation. She plans to be involved in promoting the census and 

hopes to see some of her department’s clients employed by the Census Bureau. She 

will look to Mr. Mitchell’s leadership in promoting the census. Partnership is important in 

collecting accurate data.

Beatrice Watchman

Ms. Watchman will relay the information shared at the tribal consultation to the Navajo 

Nation’s director of economic development.
Navajo Nation Consultation Final Report: Appendix C • 49

Arbin Mitchell

Census efforts need to peak at the right time. The efforts need to peak in working on the 

address listing. Once an accurate address list is created, the remaining operations will be 

easy. After that, people will expect the enumerators to knock on their doors.

Norbert Nez

Mr. Nez expressed his appreciation for the Census Bureau’s early start on tribal 

consultation for the 2020 Census.

Cathy Lacy 

A good address list is the foundation of the census, and the Census Bureau needs to 

update the list in partnership with the Navajo Nation.

Ms. Lacy provided a recap of some of the action items that surfaced during the tribal 

consultation, which include the following.

u The Census Bureau will provide tribal liaison training.

u The Census Bureau Denver Region will provide the Complete Count Handbook, 

which will include scripts that can be tailored and used in Navajo Nation 

communications about the census.

u The Census Bureau will likely hire a partnership specialist to work specifically with 

the Navajo Nation.

u The Census Bureau will internally discuss the residence rule requests raised by Mr.

Nez, the requests brought forward by Vice President Nez, and the Eastern Navajo 

Land Commission resolution. The Census Bureau will follow up with the Navajo 

Nation on these items.

Dee Alexander 

For immediate next steps, the Census Bureau will send a summary of the tribal consultation 

to Mr. Mitchell within two to three weeks so he can share it with the group. The group will

be able to add information to the notes if needed. Attendees are welcome to contact Ms.

Alexander with any related questions.

Director Thompson 

Director Thompson thanked the Navajo Nation for the thoughtful input and acknowledged 

the requests and issues that were raised. The Census Bureau will continue dialogue with 

the Navajo Nation.
50 • UNITED STATES CENSUS BUREAU 

ACTION ITEMS

u Dee Alexander will email the meeting summary to Arbin Mitchell within two to three 

weeks after the tribal consultation, and he will share it with the other consultation 

attendees.

u A final report on the Census Bureau tribal consultation with the Navajo Nation will 

be drafted and shared with the Navajo Nation in late 2016.

u The Census Bureau will follow up with the Navajo Nation on the requests made by 

Vice President Nez, which included:

} recognizing the Navajo Nation as its own Census Bureau region,

} hiring local enumerators who speak Navajo, and

} facilitating the development of a public awareness campaign specifically 

designed for a Navajo audience.

u The Census Bureau will follow up with the Navajo Nation on the residence rule 

issues and requests raised by Norbert Nez.

u The Census Bureau will follow up with the Navajo Nation regarding the resolution 

from the Eastern Navajo Land Commission.

u The Census Bureau Denver Region will share the Complete Count Handbook, which 

includes customizable scripts to aid in outreach, with the Navajo Nation as soon as 

it the handbook is complete.

TM

Prepared for the U.S. Census Bureau by:

Kauffman & Associates, Inc.

South 165 Howard St., Suite 200

Spokane, WA 99201

P: 509–747–4994 • F: 509–747–5030

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