Tax Increment Financing (TIF), whether using Sales Tax Anticipated Revenue (STAR) bonds or reimbursement, is a mechanism that uses anticipated increases in property and sales tax revenue from development to finance development costs.
In 2007, the City of Reno established a Tax Increment District (TID) to support the development of Cabela's retail store near Verdi. This initiative involved the issuance of STAR bonds to finance infrastructure improvements for the project. The amount issued was $34.7 million.
The Cabela's store, spanning approximately 129,000 square feet, was envisioned as a destination retail outlet featuring a big game museum. The project was expected to generate significant economic benefits, including job creation and the attraction of over 2 million out-of-state visitors annually.
The anticipated results did not happen; instead, other businesses suffered.
The reason this story is significant is that GSR Casino and Jacobs Entertainment are requesting millions of dollars in TIF from the City of Reno, as are other developers.
(Note: Cabela’s got STAR bonds while the GSR is getting property tax reimbursement.)
Are STAR Bonds a good idea? The answer is no. STAR bonds are not beneficial to taxpayers or to investors who purchase them in the market. STAR bonds are only helpful to corporations that receive free money, such as Cabela’s.
STAR Bonds divert tax revenue from public works. New development brings competition that diverts revenue from existing businesses. STAR bonds reduce the city's tax revenue, as 75% of the proceeds go toward debt service. STAR bonds can negatively impact the city's credit rating as they underperform and their value decreases.
Typically, a corporation like Cabela’s would issue its bonds to finance building projects. They would be obligated to pay interest and eventually redeem the bonds. With STAR bonds, the principal and interest are paid from estimated incremental sales tax attributed to the project. The corporation that gets the free money has no obligations, and the bond investors are left holding the bag.
Jacobs issued $500 million of its bonds, which it has spent chiefly on the Jands, as I wrote about in this article.
Results for Cabela’s
The financing for Cabela’s was based on optimistic projections of retail growth and out-of-town visitors, but revenues fell short of expectations.
The “Meridian Business Advisors Report” from 2006 provided initial estimates used to justify Cabela’s STAR bond project. However, the later analysis in the report “Reevaluating STAR Bonds in Northern Nevada” by Matthew D. van den Berg from 2010 finds discrepancies between projected revenues and actual performance.
The Berg study highlights one major flaw in the original STAR bond projections—the failure to account for displaced retail spending. Cabela’s did not generate new revenue; instead, it redirected existing consumer spending from other local retailers.
The Berg study notes a negative correlation between gaming revenue and sporting goods sales, suggesting that some tourist dollars may have shifted away from casinos and other retail outlets toward Cabela’s. The report found that the city council did not conduct a thorough displacement analysis, despite the Nevada STAR bond law requiring one.
Regarding the tourism impact, the original claim was that 68% of sales would come from out-of-state visitors. The revised estimate that Cabela’s later acknowledged is that only 57% of sales came from out-of-state shoppers. License plate surveys conducted for the study suggest the percentage could be even lower, meaning more local spending was diverted than initially projected.
The shortfall in sales tax revenue was confirmed at a City Council meeting on December 111, 2024, by Matt Taylor from Finance. While reviewing a recent audit report, he explained that the Cabela’s debt, which appears unusual due to a negative $17 million balance in the fund, is because the city only pays the portion of the debt that sales taxes have covered from Cabela’s.
The City of Reno AFCR. (City of Reno Annual Comprehensive Financial Report, Fiscal Year EndedJune 300, 2024) reveals that revenue covered by STAR bonds has fallen short of projections by 46%.
The GSR is now requesting tax financing.
The Grand Sierra Resort (GSR) in Reno is advancing plans for a $1 billion development project that includes a $400 million arena. The project is on track for a groundbreaking in late June 2025, pending approval for tax-increment financing.
Initially, GSR indicated that the project would be entirely privately funded. However, in October 2024, GSR requested approximately $97 million in tax-increment financing from the City of Reno, representing about 9.7% of the total project cost.
The Reno City Council has authorized staff to continue discussions with GSR and to commission a third-party review to assess the project’s potential impact on the city. GSR aims to begin construction in spring 2025, with the arena expected to be ready for use by the University of Nevada’s basketball team in fall 2027.
As of now, the project is progressing through the necessary approval processes, and further developments are anticipated as discussions continue between GSR and the City of Reno.
The GSR had its request for $61 million approved recently, as I wrote about in this article.
Conclusion
The Cabela’s STAR bond project did not meet its original financial expectations. Sales were lower than projected, resulting in reduced tax revenue and weakening the argument that the project had a significant benefit to the local economy. The tourism impact was overstated, with many sales likely driven by local spending rather than by out-of-state visitors. Better oversight and financial modeling are needed for future projects.
Current and future projects are likely to have similar unfortunate results. The City of Reno should not be financing corporate properties. These bond-financed projects are not successful in any city. Given this situation, the residents of Reno should object to any further STAR bond issues or TIF deals.
See these reports for more information:
(Note: Reno has bonds for the Train Trench, Ballroom, Event Center, and Bowling Stadium, which I will cover in other posts.)