Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013

APPLICATION UNDER 

SMALL COMMUNITY AIR SERVICE DEVELOPMENT PROGRAM

DOCKET DOT-OST-2013-0120

SUMMARY INFORMATION

A. PROVIDE THE LEGAL SPONSOR AND ITS DUN AND BRADSTREET (D&B) DATA UNIVERSAL NUMBERING SYSTEM (DUNS)

NUMBER, INCLUDING +4, EMPLOYEE IDENTIFICATION NUMBER (EIN) OR TAX ID.

Legal Sponsor Name: 

Clinton County, New York

DUNS Number:

060538576

EIN/Tax ID:

14-6002565

B. LIST THE NAME OF THE COMMUNITY OR CONSORTIUM OF COMMUNITIES APPLYING:

1. CLINTON COUNTY, NEW YORK

C. PROVIDE THE FULL AIRPORT NAME AND 3-LETTER IATA AIRPORT CODE FOR THE APPLICANT(S) AIRPORT(S) (ONLY 

PROVIDE CODES FOR THE AIRPORT(S) THAT ARE ACTUALLY SEEKING SERVICE).

1. Plattsburgh International Airport (PBG)
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013

D. LIST THE 2-DIGIT CONGRESSIONAL DISTRICT CODE APPLICABLE TO THE SPONSORING ORGANIZATION, AND IF A 

CONSORTIUM, TO EACH PARTICIPATING COMMUNITY.

1. NY-21

E. APPLICANT INFORMATION: (CHECK ALL THAT APPLY)

Not a Consortium Interstate Consortium Intrastate Consortium

Community now receives subsidized Essential Air Service

Community (or Consortium member) previously received a Small Community Air Service 

Development Program Grant

If previous recipient: Year of grant(s): 

F. PUBLIC/PRIVATE PARTNERSHIPS: (LIST ORGANIZATION NAMES)

PUBLIC PRIVATE

1. Clinton County 1. North Country Chamber of Commerce

2. Plattsburgh International Airport 2. The Development Corporation

3. 3.

4. 4.

5. 5.

G. PROJECT PROPOSAL: (CHECK ALL THAT APPLY)

Marketing Upgrade Aircraft New Route

Travel Bank Service Restoration Subsidy

Surface Transportation Regional Service Revenue Guarantee

Launch New Carrier Start-up Cost Offset First Service

Study Secure Additional Service Other (explain below)

H. EXISTING LANDING AIDS AT LOCAL AIRPORT:

Full ILS Outer/Middle Marker Published Instrument Approach

Localizer Other (specify)

X
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013

I. PROJECT COST: DO NOT ENTER TEXT IN SHADED AREA

LINE DESCRIPTION SUB TOTAL TOTAL AMOUNT

1 Federal amount requested $200,000

2 State cash financial contribution $0

Local cash financial contribution

3a Airport cash funds $0

3b Non-airport cash funds $50,000

3 Total local cash funds (3a + 3b) $50,000

4 TOTAL CASH FUNDING (1+2+3) $250,000

In-Kind contribution

5a Airport In-Kind contribution** Various

5b Other In-Kind contribution** Various

5 TOTAL IN-KIND CONTRIBUTION 

(5a + 5b) Various

6 TOTAL PROJECT COST (4+5) $250,000

J. IN-KIND CONTRIBUTIONS**

For funds in lines 5a (Airport In-Kind contribution) and 5b (Other In-Kind contribution), please 

describe the source(s) of fund(s) and the value ($) of each.

Local media companies will offer discounts on advertising; partner airlines will offer free tickets 

for giveaways; the North Country Chamber of Commerce provides monthly outreach and 

newsletters at no charge; the North Country Chamber of Commerce also promotes the Airport 

at regional trade shows at no cost.
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013

K. IS THIS APPLICATION SUBJECT TO REVIEW BY STATE UNDER EXECUTIVE ORDER 12372 PROCESS?

a. This application was made available to the state under the Executive Order 12372 

Process for review on (date) _____________.

b. Program is subject to E.O. 12372, but has not been selected by the state for review.

c. Program is not covered by E.O. 12372.

L. IS THE APPLICANT DELINQUENT ON ANY FEDERAL DEBT? (IF “YES”, PROVIDE EXPLANATION)

No Yes (explain) 

_____________________________________________________________________________________________
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 1

TABLE OF CONTENTS

Legal Sponsor 1

Introductory Letters of Support 2

Introduction 6

The Plattsburgh Air Service Market 7

Low Cost Service vs. Network Service 9

Overall Air Service Demand 13

Air Service Needs and Deficiencies in Plattsburgh 14

Regional Load Factors 14

Connectivity Challenges 15

Per Capita Capacity 17

Strategic Plan to Grow Passengers 19

Project Timeline 21

Public/Private Partnership 22

Letters of Support 23

Conclusion 30

LEGAL SPONSOR

Clinton County, New York, is the legal sponsor responsible for administering the proposed air 

service development program. Clinton County owns and operates the Plattsburgh International 

Airport.

Clinton County

137 Margaret Street, Suite 208

Plattsburgh, New York 12901

Rodney L. Brown, Deputy County Administrator

(518) 565-4709

brownr@co.clinton.ny.us

Section Page Number
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 2

INTRODUCTORY LETTERS OF SUPPORT
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 3
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 4
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 5
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 6

INTRODUCTION

Plattsburgh International Airport has been one of the success stories among non-hub airports 

over the last decade. It has recruited two low cost less-than-daily carriers to begin service, 

boosting passengers using the Airport by an astounding 3,130%. But while low cost carriers have 

had success in pulling passengers across the Canadian border, the Airport’s Essential Air Service 

(EAS) has seen a passenger decline.

Contrary to the overall performance of the Plattsburgh market, which averages a 79% load 

factor, overall, its EAS flights on PenAir, to Boston, fill only 33% of available seats. One of the 

issues is fares that have increased, overall, by 33% in the last three years. Fares on Plattsburgh’s 

EAS flights, alone, have increased 43% over the same period. But 

the fare increases have not driven passengers away from lessthan-daily service at Plattsburgh.

It appears there are two main factors causing low load factors, 

and poor performance, on Plattsburgh’s PenAir service. One, 

PenAir does not have sufficient airline codeshare agreements at 

Boston to adequately connect Plattsburgh-area passengers efficiently to the national air 

transportation system. And two, the awareness of PenAir’s service pattern, which was 

established only a year ago with the DOT’s new award of service to PenAir, is not sufficient – as 

those living in the region do not understand that there is daily service available at Plattsburgh.

The Airport has developed a strategic plan to improve passenger support of its EAS flights. The 

plan calls for increased advertising and marketing of PenAir’s service throughout the region, to 

ensure regional travelers are aware of the service, the availability of flights, and its 

competitiveness with alternate service across the Canadian border in Montreal. The plan also 

calls for the Airport to work with PenAir to facilitate meetings with carriers serving Boston to 

develop codeshare and interline agreements to allow for better connectivity at the hub. This 

portion of the plan will also include funding, if necessary, to ensure major airlines booking systems 

can adequately “talk” with PenAir’s system.

Plattsburgh International Airport has never before requested Small Community Air Service 

Development Grant funding. A 2013 Grant is essential in ensuring the market’s EAS flights are 

sustainable and supported by the community.

“...EAS flights on PenAir... 

fill only 33% of available 

seats... [while fares] have 

increased 43%...”
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 7

THE PLATTSBURGH AIR SERVICE MARKET

Current and Historical Air Service

Plattsburgh is an Essential Air Service (EAS) market in the northern part of New York State, a 30 

minute drive from the border with Quebec, Canada, and an hour and 15 minute drive south of 

Montreal (see Map 1). While 

Plattsburgh qualifies for 

subsidized daily service to 

Boston on PenAir, it is also 

served on a less-than-daily 

basis by Allegiant and Spirit, 

with low cost service to specific 

leisure destinations. This service 

draws heavily from the 

Canadian side of the 

catchment area, and has 

helped boost passengers using 

Plattsburgh International Airport 

by an astounding 3,130% since 

2007.

The immediate Plattsburgh 

catchment area, seen in Map 

1 inside the red outline, is home to 79,219 people as of the latest US Census estimates. But 

Plattsburgh International Airport draws from a much larger area. The combined Plattsburgh -

Montreal catchment area, from which most of the Airport’s passengers are generated, has a 

population of 4.1 million. It is seen inside the blue line in Map 1. The City of Montreal, itself, which 

is responsible for the largest share of passengers using the Airport, has a population of 1.9 million.

MAP 1: Plattsburgh International Airport Catchment Area

Source: Sixel Consulting Group, 2011 Census Estimates
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 8

People living in Quebec drive into the US to access air 

service at, primarily, two airports: Plattsburgh 

International and Burlington International in Vermont. 

Since Plattsburgh service has increased, it has 

become the airport of choice for Canadians. The 

drive from Montreal to Plattsburgh’s airport is just an 

hour and 15 minutes, with a divided highway on the 

entire route (see Map 2). The drive from Montreal to 

Burlington is less direct, routing along two-lane roads 

in Canada. That drive takes an average of two hours 

– 45 minutes longer than the drive to Plattsburgh.

Plattsburgh International Airport has been able to 

leverage its proximity to Montreal to recruit low cost 

service. Montreal fares are among the highest in 

North America, which provides Allegiant and Spirit 

with the opportunity to bring that traffic across the 

border. As of August of 2013, Plattsburgh has non-stop 

service on seven routes, with an average of 524 daily

departing seats (see Map 3 and Figure 1 on next page). Allegiant offers less-than-daily service 

to Ft. Lauderdale, Las Vegas, Orlando/Sanford, Punta Gorda, and St. Petersburg-Clearwater. 

Spirit offers less-than-daily service to 

Myrtle Beach, with seasonal service 

to Ft. Lauderdale, beginning again 

in November of 2013. Plattsburgh’s 

EAS-subsidized service is PenAir’s 

twice-daily flights to Boston. In all, 

Plattsburgh seats are up 13% over 

August of 2012, but its only daily 

network connecting service is flat, 

with just 58 daily departing seats 

connecting to the national air 

transportation system.

MAP 3: Current Service at Plattsburgh International Airport

Source: Sixel Consulting Group; OAG Schedule Data, July 2013

MAP 2: Plattsburgh’s Proximity to Montreal

Source: Sixel Consulting Group, July 2013
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 9

Air service moved from the 

Clinton County Airport to the 

Plattsburgh International 

Airport, on the former 

Plattsburgh Air Base, in June 

of 2007. The County and its 

partners took the opportunity 

of the move to step up air 

service development efforts. 

Those efforts resulted in 

changes to EAS service, increasing its reliability, and the recruitment of Allegiant and Spirit. In 

2007, the Plattsburgh market retained an average of just 8.4 passengers per day each way 

(PDEW) (see Figure 2). By 2011, that number had grown by 3,340%, to an average of 289.2 

PDEW. In 2012, the Airport averaged 271.6 PDEW, down slightly from the 2011 peak.

As low cost less-than-daily service became established in Plattsburgh, fares came down. Both 

Allegiant and Spirit provide ultra-low fares, with additional profit generated through ancillary 

fees. This model has had much success in drawing Canadian passengers to Plattsburgh. From 

2005 to 2009, the average one way Plattsburgh fare dropped by 43% (see Figure 2). Since then, 

however, Plattsburgh fares have been creeping higher. In 2012, the average one way fare was 

33% higher than in 2009 or an average of $33 higher each way.

FIGURE 2: O&D Passengers and Average One Way Fares, Plattsburgh International Airport

Source: US DOT OD1A, Calendar Year 2004 – Calendar Year 2012

Non-Stop Departures Seats Departures Seats Capacity

Carrier Destination Per Day Per Day Per Day Per Day Change

Allegiant FLL 1 176 1.1 182 3.3%

PIE 0.3 43 0.2 38 -13.2%

PGD 0 0 0.1 16 100.0%

LAS 0 0 0.3 48 100.0%

SFB 0.7 113 0.6 107 -5.6%

Allegiant Total 2 332 2.3 391 15.1%

PenAir BOS 1.7 59 1.7 58 -1.7%

PenAir Total 1.7 59 1.7 58 -1.7%

Spirit MYR 0.5 66 0.4 75 12.0%

Spirit Total 0.5 66 0.4 75 12.0%

Plattsburgh Total 4.2 457 4.4 524 12.8%

Aug-12 Aug-13

FIGURE 1: Scheduled Service at Plattsburgh Int’l Airport, 8/12 vs. 8/13

Source: Sixel Consulting Group; OAG Schedule Data, July 2013
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 10

The fare picture is much different when Allegiant and Spirit are excluded from the analysis, and 

only Plattsburgh’s EAS flights are considered. With its Boston flights, PenAir currently provides 

Plattsburgh’s only daily connection to the rest of the world. But the average fare on flights 

providing network connectivity was $183 each way in 2012, up $55 each way, or 43%, from 2009 

(see Figure 3). Plattsburgh’s network fare was 37% 

higher than its overall average fare in 2012.

While fares have been climbing, so have the number 

of passengers using Plattsburgh’s network service. 

From 2007 to 2010, Plattsburgh EAS passengers rose 

from 5.3 PDEW to 29.7 PDEW – an increase of an 

average of 24.4 PDEW or 460% (see Figure 3). Still, 

since 2010, network passengers at Plattsburgh have 

declined to an average of just 19 PDEW, a drop of 

36%. This reflects the lack of codeshare and interline 

connectivity on the Airport’s current EAS carrier, 

PenAir. PenAir only codeshares with a single airline in 

Boston, and interlines with just three others. 

Connections are difficult in Boston without baggage 

transfers and through ticketing. This difficulty in 

connectivity has resulted in passenger suppression.

Plattsburgh’s top origin and destination passenger 

markets are the markets to which it has non-stop low 

cost service. Its top three markets for 2012 all have 

FIGURE 4: Top 20 O&D Passenger Markets at PBG

Source: US DOT OD1A, Calendar Year 2012

FIGURE 3: O&D Passengers and Average One Way Fares at PBG on PenAir/EAS Service

Source: US DOT OD1A, Calendar Year 2004 – Calendar Year 2012
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 11

non-stop service provided by Allegiant – Ft. 

Lauderdale, Orlando/Sanford, and Tampa-St. 

Petersburg (see Figure 4 on previous page). 

Boston is Plattsburgh’s only market with daily 

service, and it ranks fourth, but generates just 6.1 

PDEW on an average of 58 daily departing seats.

As mentioned, the overall average one way fare 

at Plattsburgh International Airport was $134 in 

2012 (see Figure 5). But that fare is brought down 

by less-than-daily low cost service. While the Ft. 

Lauderdale fare averaged $136 each way, and 

the Orlando/Sanford fare averaged $122 each 

way, the Washington, DC, fare averaged $229 

each way, even though Washington is less 

than half the distance from Plattsburgh as it 

is to the Florida cities. While Plattsburgh 

offers competitive fares to leisure markets, its 

business connectivity is damaged by high 

fares and a lack of support for its Essential Air 

Service.

This is also reflected in Plattsburgh’s top 

origin and destination passenger markets,

excluding Allegiant and Spirit. When only 

passengers traveling on PenAir, and 

subsequent connections, are taken into 

account, Boston is the only market that 

FIGURE 5: Average One Way Fares at Top 20 Markets at PBG

Source: US DOT OD1A, Calendar Year 2012

FIGURE 6: Top 20 O&D Passenger Markets on PenAir at PBG

Source: US DOT OD1A, Calendar Year 2012
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 12

generates more than one PDEW (see Figure 6

on previous page). It’s likely that a number of 

the passengers being reported as Boston origin 

and destination actually made connections at 

Boston, but purchased two separate tickets for 

their journey – one from Plattsburgh to Boston 

and another from Boston to the ultimate 

destination. This happens often in situations 

where an airline, such as PenAir, lacks 

codeshare connectivity at the hub.

The average fare on Plattsburgh’s network 

connecting service was $183 one way in 2012 

(see Figure 7). But this probably does not reflect 

the true average fare, as the Boston fare 

averaged $106 each way, but it stands to 

reason many who traveled through Boston had 

to buy another connecting ticket after they 

purchased their Boston ticket. Fares to cities up 

and down the East Coast are commonly more 

than $200 each way, while fares to cities west of 

the Mississippi are commonly above $300 each 

way. These higher fares suppress passengers, 

and are not as attractive to Canadian-based travelers as the fares on the less-than-daily carriers.

High fares and a general lack of knowledge about how to use PenAir service to connect to 

destinations other than Boston have suppressed loads since PenAir took over Plattsburgh’s EAS 

contract in June of 2012. Since that service change, the Plattsburgh – Boston route has 

averaged a load factor of just 33% (see Figure 8). Load factors have slowly been climbing, but 

FIGURE 7: Average One Way Fares at Top Markets on PenAir

Source: US DOT OD1A, Calendar Year 2012

FIGURE 8: Passengers and Seats per Day Each Way, and Load Factor on PenAir at Plattsburgh Int’l Airport

Source: US DOT T100; June 2012 – March 2013
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 13

the best month – March of 2013 – averaged just 40% of available seats filled, or an average of 22

onboard PDEW.

PenAir’s performance does not mean the Plattsburgh region lacks demand for air service. Other 

carriers, leveraging Canadian passengers, have proven Plattsburgh works. In fact, the market’s 

overall load factor, including service on PenAir, Allegiant, and Spirit, for the 12 months ended 

March 2013, was 79% (see Figure 9). In its best months, service at Plattsburgh International 

Airport has generated load factors between 90% and 93%.

Besides the low fares they offer, both Allegiant and Spirit have expended significant time and 

money advertising their services at Plattsburgh throughout the market – including in Canada. 

This has resulted in growing service awareness, and growing numbers of passengers. As a small 

operator, PenAir does not have the available funding to similarly advertise its services in the 

market, which hurts its load factors.

FIGURE 9: Passengers and Seats per Day Each Way, and Load Factor at Plattsburgh International Airport

Source: US DOT T100; January 2010 – March 2013
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 14

AIR SERVICE NEEDS AND DEFICIENCIES IN PLATTSBURGH

While Plattsburgh International Airport has had strong success in recruiting less-than-daily low 

cost service to the Airport, and then drawing passengers to that service, the performance of its 

Essential Air Service (EAS) continues to lag many other northeast markets. Service recently 

changed, as PenAir won the contract to serve Boston beginning in June 2012. In the year since, 

the Airport has seen its network carrier passengers drop by 32%. Some of the reasons for this 

passenger decline have been mentioned in this application, including the lack of true 

codeshare and interline connectivity and the lack of advertising throughout the market. This 

section of the application will further elaborate on these issues.

Plattsburgh’s network carrier service, again 

provided by PenAir, is operating at the second 

lowest load factor of all 36 commercially-served 

airports in the northeastern states of Maine, 

Massachusetts, New Hampshire, New York, and 

Vermont (see Figure 10). In 2012, PenAir’s 

Plattsburgh – Boston route filled just 33% of its 

available seats. The regional average for that 

period was 82%. All other EAS markets in the 

region performed better, with the exception of 

Jamestown. The best performing EAS market was 

one of the smallest, in terms of catchment area 

population – Rockland, Maine. Plattsburgh is, in 

fact, one of the largest EAS catchment areas in 

the country when Canadian residents are taken 

into account. With 3.9 million people within an 

hour of the Airport, Plattsburgh should fill a much 

higher proportion of its available network carrier 

seats.

There is no question the lack of connectivity at 

PenAir’s Boston hub hurts Plattsburgh’s load 

factors. The three cities with PenAir service to and 

FIGURE 10: Northeast Markets Ranked by Load Factor

Sources: US DOT T100, Calendar Year 2012
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 15

through Boston have three of the four lowest average load factors of northeast markets –

Plattsburgh, Presque Isle, and Bar Harbor (see Figure 10 on previous page). PenAir has a 

codeshare agreement with just one airline at Boston – Alaska Airlines. Alaska is a Seattle-based 

company, whose network strength lies along the Pacific coast. It does not have a Boston hub. 

In fact, from Plattsburgh, there are only 

three codeshare cities available for sale: 

Portland, Oregon; San Diego; and 

Seattle-Tacoma, Washington – the three 

cities Alaska serves non-stop from Boston 

(see Map 4). Of those three cities, only 

San Diego ranks in Plattsburgh’s top 20 

origin and destination markets – at 

number 17.

In order to book tickets to destinations other than those that are on codeshare carriers, 

passengers in Plattsburgh must either contact PenAir, their travel agent, or go to a third party 

website to have the ticket built between multiple carriers. This discourages a number of people 

from booking – as they worry about baggage 

transfers and recovery from operational problems. 

The lack of more extensive codeshares also results 

in higher fares, as passengers have to pay the 

PenAir Boston roundtrip, in addition to the 

roundtrip fare from Boston to their ultimate 

destination. On codeshares, these fares are 

merged. In interline situations the fares are simply 

added together.

As of July of 2013, PenAir does have interline

agreements with Delta, United, and US Airways 

(see Figure 11). This means baggage can be 

transferred between the carriers and there are 

protections for passengers in the case of delays 

and cancellations. However, it does not allow for 

through pricing. Together, these interline carriers 

MAP 4: Current Codeshare Markets from Plattsburgh

Source: Sixel Consulting Group, July 2013

FIGURE 11: PenAir’s Airline Agreements at Boston

Sources: Sixel Consulting Group, July 2013

Airline Non-Stop Boston Cities

Alaska Airlines 3

Delta 22

United 9

US Airways 17

Air Canada 4

American Airlines 7

Cape Air 11

JetBlue Airways 50

Lufthansa 2

Southwest Airlines 14

Spirit Airlines 6

Virgin America 2

All Airlines 40

All Airlines 56

Connecting Cities Missed without Interline

Codeshare Agreement

Total Interline/Codeshare Connecting Cities

No Agreement

Interline Agreement
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 16

offer service to 37 destinations from Boston. When Alaska’s three codeshare destinations are 

added, PenAir provides connections at Boston to 40 total airports with a single stop and, at 

minimum, baggage transfers.

Still there are another 56 destinations served non-stop from Boston with no interline or codeshare 

connections available on PenAir’s current Plattsburgh service (see Figure 11 on previous page). 

Boston’s largest carrier, in terms of both non-stop cities served and total available seats, is 

JetBlue – but PenAir has no agreement with it for connecting passengers. Plattsburgh 

passengers traveling to destinations where JetBlue is the sole non-stop carrier from Boston must 

buy a ticket to Boston on PenAir, and then purchase a separate ticket on JetBlue’s Boston 

service. These passengers must go to baggage claim to collect checked bags upon arrival at 

Boston, and then check in again in Boston with JetBlue, followed by another trip through 

security. Not only is this type of travel time consuming, it is also expensive, as the passenger is 

booking two separate tickets. Moreover, should a flight on one carrier be delayed, and the 

passenger miss the next flight, there is no protection for that 

passenger – JetBlue, in that case, can force the passenger to 

buy a new ticket on the next flight.

While PenAir’s service has been classified by those in 

Plattsburgh as excellent, and its new Saab 340 aircraft are 

some of the nicest and safest flying in regional service, its lack 

of connectivity at Boston drives many passengers away. Still, there is potential with improved 

connectivity to grow PenAir’s passenger base and to ensure the service has the best chance 

possible to achieve sustainability.

Another major impediment to PenAir’s success, at least in its first 12 months of service in 

Plattsburgh, is a lack of awareness about the service throughout the market. While those near 

the Airport realize there has been a service change, back to a “cabin class” aircraft, many in 

the greater region are unaware. PenAir, as a smaller, regional carrier, does not have the 

necessary funding for wide-scale advertising that covers the market – including Canada – but 

these Canadian passengers will be part of the key to success in the long term. It is reasonable to 

believe, with a low average fare to and from Boston ($106 each way as of 2012), PenAir’s 

service should be able to perform in line with the service of low cost carriers in Plattsburgh. 

Wider-scale advertising will be the key to improvement in performance.

“[PenAir’s] lack of 

connectivity at Boston 

drives many passengers 

away.”
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 17

Even when low cost service is taken into account at Plattsburgh International Airport, the market 

is still underserved compared to its regional peers. In 2012, Plattsburgh had just 3.06 available 

airline seats per capita (see Figure 12). This was 

just 67% the capacity per capita that other 

northeast region airports with between 100,000 

and one million available seats per year 

averaged. That group of airports averaged 4.56 

seats per capita of their immediate catchment 

areas.

When low cost less-than-daily carriers are removed 

from the analysis, the number of available seats 

per capita on network carrier service in 2012 at 

Plattsburgh was just 0.26, which ranks Plattsburgh 

as the market with the second lowest per capacity 

airline capacity in the northeast. Plattsburgh’s network carrier capacity per capita is just 6% of 

the average per capita capacity in similarly sized airports in the northeast.

The same is true in the number of passengers generated in Plattsburgh per capita of its 

immediate, US-only, catchment area. On its daily network service in 2012, Plattsburgh 

generated just 0.09 passengers per capita, 

which ranks as the lowest number of 

passengers per capita in similarly sized 

airports in the northeast, which includes 

Maine, Massachusetts, New Hampshire, New 

York, and Vermont. Plattsburgh’s network 

service generated 3% the passengers of the 

average airport in the region with between 

100,000 and one million annual available 

airline seats.

When all of Plattsburgh’s service is taken into 

account, including passengers on both 

Allegiant and Spirit, the market still generated just 67% the passengers per capita of its peer 

markets in the northeast (see Figure 13). In 2012, Plattsburgh averaged 2.41 passengers per 

FIGURE 12: Seats per Capita in Northeast Markets

Sources: US DOT T100, 2011 US Census; Calendar Year 2012

FIGURE 13: Passengers per Capita in Northeast Markets

Sources: US DOT T100, 2011 US Census; Calendar Year 2012
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 18

capita on all its scheduled airline service. The overall northeast average, in similarly sized 

markets, was 3.58 passengers per capita.

Plattsburgh is underserved, suffers from a lack of connectivity on its daily scheduled service, and 

suffers from a lack of awareness created by an operator change on its newly issued EAS 

contract. The market has proven it can support the right kind of service, as evidenced by the 

success enjoyed by both Allegiant and Spirit. Plattsburgh’s EAS service can enjoy the same kind 

of success with broader awareness, and better connectivity at the hub.
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 19

STRATEGIC PLAN TO GROW PASSENGERS

Plattsburgh International Airport is seeking federal assistance, matched by local cash funding, for 

a dual approach to improving the performance of its Essential Air Service (EAS). One part of the 

strategic plan is to assist PenAir develop additional interline agreements and codeshare 

agreements with airlines serving Boston, in order to 

facilitate better connectivity for Plattsburgh 

passengers. The second part of the strategic plan 

is to increase local and regional awareness of 

PenAir service through a large advertising and 

marketing campaign.

From the total project cost of $250,000, at least 

$200,000 will be earmarked for advertising and 

marketing of Essential Air Service on PenAir. Of the 

marketing budget, $50,000 is being provided by 

local partners, including the North Country 

Chamber of Commerce, the Development 

Corporation, and Clinton County, New York.

The advertising campaign will be the first of its kind 

in the region dedicated to growing passengers on 

Plattsburgh International Airport’s Essential Air 

Service. While the Airport’s less-than-daily low cost 

carriers have advertised extensively in the region, 

with great success, the market’s EAS flights have 

gone overlooked. This program is key to getting 

people to realize the market has daily service to a 

major hub, and growing load factors above their 

current 33% average.

The campaign will leverage the Airport’s current 

slogan, “Montreal’s US Airport” (see Figure 14). It 

will cover the larger region, to ensure those across 

the border, in Canada, see the marketing effort, 

FIGURE 14: Example of Advertising Content

Source: Plattsburgh International Airport, July 2013
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 20

and it will make direct comparisons to Boston service 

offered out of Montreal – Plattsburgh’s main 

competing airport. In many, if not most, cases the 

service between Plattsburgh and Boston on PenAir is 

priced lower than service on Air Canada at 

Montreal. Unique to this market, the campaign will 

be bilingual – with content produced in both English 

and French (see Figure 15). Many of the US residents 

living in and around Plattsburgh speak French, so it is 

essential to produce the campaign in both 

languages.

Additionally, the Airport and its 

partners will look to leverage their 

on-line presence to push 

additional travelers onto PenAir. 

The Airport has a large e-mail 

database developed over the last 

ten years. It uses this database to 

send news and information to its 

subscribers (see Figure 16). With 

the help of this Grant, the Airport 

will use other websites to get “click 

throughs” to its website, and to 

get more people signed up for its 

web newsletters and marketing.

Beyond the marketing campaign, 

the Airport will commit up to 

$50,000 to the effort to get PenAir 

linked to more airlines to improve 

connectivity at Boston. This 

funding will be used to facilitate 

headquarters meetings between 

the Airport, PenAir, and targeted 

FIGURE 15: Example of Bilingual Advertising Content

Source: Plattsburgh International Airport, July 2013

FIGURE 16: Example of E-Mail Advertising Content

Source: Plattsburgh International Airport, July 2013
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 21

airlines; to facilitate improvements to technology to allow PenAir’s reservation systems to more 

efficiently communicate with the systems of other carriers; and to demonstrate the value of the 

PenAir passenger feed to other carriers at Boston.

The anticipated timeline for the project assumes a Grant would be awarded in September of 

2013 (see Figure 17). If the Grant agreement with the DOT is finalized in October of 2013, the 

current air service campaign 

will begin both in- and out-ofmarket by January of 2014. At 

the same time, during the fall 

of 2013 and into the spring of 

2014, the Airport will work with 

PenAir to facilitate meetings 

with potential interline and 

codeshare carriers. This effort 

will continue throughout the life 

of the Grant, as the Airport 

works to identify PenAir’s 

technology needs, and to help execute agreements with other carriers. The Airport anticipates 

closing the Grant by January of 2016, if not before.

FIGURE 17: Project Timeline

Source: Plattsburgh International Airport, July 2013

Activity/Project Milestone Estimated Date

SCASD Grant Award Announcement Sepetmber 2013

Execute Grant Agreement with DOT October 2013

Execute Agreement with Marketing Firm October 2013

Begin Work with PenAir/Headquarters Meetings November 2013

Develop Creative Fall/Winter 2013

Develop Comprehensive Placement Strategy Fall/Winter 2013

Launch Campaign January 2014

Identify PenAir Technology Needs January 2014

Sustain Campaign January 2014 - December 2015

Monitor Service Performance January 2014 - December 2015

Execute Additional Airline Agreements Summer/Fall 2014

Submit Grant Status Reports to DOT Quarterly Q4 2013 - Q4 2015

Close Grant January 2016
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 22

PUBLIC/PRIVATE PARTNERSHIP

This application for federal Small Community Air Service Development Grant funding is 

supported by a collection of community partners which have pledged hard matching cash. 

These partners include the local chamber of commerce, the local economic development 

organization, and the County that owns and operates Plattsburgh International Airport.

North Country Chamber of Commerce

The mission of the North Country Chamber of Commerce is to strengthen the economic climate 

of the Plattsburgh region, which includes a number of individual cities and towns. The Chamber 

represents thousands of businesses with diverse interests – but nearly all of its members rely upon 

air service to some degree. The Chamber will be the main matching partner for this application.

The Development Corporation

The Development Corporation (TDC) is committed to developing partnerships with companies 

that can benefit from the many strategic advantages to expanding or relocating in the Greater 

Plattsburgh area in Clinton County, New York. TDC is the single resource for companies wanting 

to see the best that the region has to offer - in terms of incentives, workforce and facilities both in 

and outside of TDC’s three industrial parks. TDC began with a few local businessmen getting 

together and investing their own money in the economic prosperity of Greater Plattsburgh. 

More than 50 years later, TDC owns and manages three industrial parks and is led by a Board of 

Directors comprised of the region’s most distinguished business and community leaders.

Clinton County

Clinton County owns and operates Plattsburgh International Airport. The Airport is an 

independent department within the County governance structure. The County took 

responsibility for the current facility in 2007 when the Plattsburgh Air Base, utilizing the same 

runway and physical plant, was closed. All commercial service moved from the former Clinton 

County Airport to the current airport at that time. The County is the sponsor of this application.
Proposal of Plattsburgh International Airport • Plattsburgh, New York • July 2013 23

LETTERS OF SUPPORT
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CONCLUSION

Plattsburgh International Airport has never before requested Small Community Air Service 

Development Grant funding. This would be the market’s first award – an award that is critical to 

the sustainability of its Essential Air Service (EAS). Plattsburgh’s EAS flights average only a 33% 

load factor. Fares on those flights have risen 43% in the last three years, further suppressing local 

traffic.

It’s not that the Plattsburgh market has trouble supporting air service. Plattsburgh’s low cost lessthan-daily carriers fill an average of 84% of their seats, despite fares that have risen 33% in the 

last three years. Both Allegiant and Spirit have been able to thrive in the market, leveraging 

Plattsburgh’s position as a border community, and pulling traffic from Canadian communities, 

including Montreal. There is no reason Plattsburgh’s 

EAS flights should not be able to leverage the same 

traffic for similar success.

There are two main challenges with current EAS flights. 

The first is the fact that PenAir’s entrance into the 

market last summer has not been as well publicized as 

it could have been. The second has to do with PenAir’s connectivity to other carriers at its 

Boston hub. The carrier codeshares with just one airline in Boston – and that airline only flies to 

three non-stop destinations from Boston. PenAir does not have a codeshare with any carrier at 

Boston who operates to a significant number of non-stop destinations, making interline 

connections difficult for all but the most seasoned travelers.

This application seeks funding to both improve awareness of PenAir service in the region, and to 

improve the connectivity at the PenAir hub in Boston. Funding will be used to market and 

advertise the service, and to assist PenAir in gaining additional airline connectivity agreements. 

In the latter regard, this Grant will assist all other communities in the US with PenAir service.

“This would be the market’s 

first award – an award that is 

critical to the sustainability of 

its Essential Air Service.”