OPINION
W. FLETCHER, Circuit Judge:
Peabody Western Coal Co. ("Peabody") mines coal at the Black Mesa Complex and Kayenta mines on the Hopi and Navajo reservations in northeastern Arizona under leases with the tribes. At issue in this appeal are two leases with the Navajo Nation ("the Nation") that permit Peabody to mine coal on Navajo reservation land. Each lease requires Peabody to give preference in employment to "Navajo Indians." Both leases received...
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