Order 2011-4-4

Served: April 5, 2011

UNITED STATES OF AMERICA

DEPARTMENT OF TRANSPORTATION

OFFICE OF THE SECRETARY

WASHINGTON, D.C.

Issued by the Department of Transportation

on the 5

th of April, 2011

Essential Air Service at

DODGE CITY, KANSAS

GARDEN CITY, KANSAS

GREAT BEND, KANSAS

HAYS, KANSAS

LIBERAL, KANSAS

Under 49 U.S.C. 41731 et seq. 

Docket OST-1998-3502

Docket OST 1998-3503

Docket OST 1998-3496

Docket OST 1998-3497

Docket OST 1998-3498

ORDER REQUESTING PROPOSALS

Summary

By this order, the Department is requesting proposals by May 2, 2011, from carriers 

interested in providing essential air service (EAS) at Dodge City, Garden City, Great 

Bend, Hays, and Liberal, Kansas, for a new two-year period, beginning October 1, 2011, 

with or without subsidy. 

Background

By Order 2009-9-5, September 11, 2009, the Department selected Great Lakes Aviation, Ltd, 

to provide subsidized EAS to Dodge City, Garden City, Great Bend, Hays, and Liberal, 

Kansas, through September 30, 2011. Under that order, the Department authorized annual 

subsidy for Great Lakes, for weekly round trips, as follows: Dodge City, 12 nonstop and 12 

one-stop for $1,842,749; Garden City, 30 nonstops for $1,884,303; Great Bend, 12 one-stops

for $1,257,617; Hays, 24 nonstops for $1,954,327; and Liberal, 18 nonstops for $1,958,570. 

All of the service was to be provided to Denver under code shares with both United Airlines 

and Frontier Airlines with 19-seat Beech 1900 aircraft except for Great Bend, which was to 

receive Kansas City Service. By Order 2009-10-16 the Department approved an alternate 

service pattern allowing Dodge City and Garden City to receive up to seven nonstop or onestop round trips per week to Kansas City in lieu of Denver. 

Request for Proposals

As the end of the current rate term approaches, we are hereby requesting proposals from 

carriers interested in providing service at any or all of the five communities, with or without 

subsidy, for the two-year period beginning October 1, 2011. Carriers should file their

proposals by May 2. Staff will then docket the proposals, thereby making them public. 

Shortly afterwards, we will provide a summary of the proposals to the communities and State 
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and ask them to submit their final comments. We will give full consideration to all proposals 

filed in a timely manner.1 

Interested carriers should prepare their proposals with every expectation that their initial 

proposals will also be their final and only proposals. We retain the discretion to negotiate 

proposals with carriers when we deem it desirable. We also retain the discretion to reject 

outright all unreasonable or unrealistic proposals and, if necessary, solicit a new round of 

proposals. However, we anticipate that negotiation or rejection will remain only

occasional exceptions to the rule.

We are here providing interested carriers with some basic information to serve as 

guidance when they prepare their proposals, but we will not prescribe a precise format for 

their proposals. We expect proposals to adequately describe the service being proposed 

and the annual amount of subsidy being requested. The applicants can make their own 

judgments as to the level of detail they wish to present; however, they might want to 

include proposed schedules as well as supporting data for their subsidy requests, such as 

projected block hours, revenues, and expenses. We strongly encourage clear, welldocumented proposals that will facilitate their evaluation by the affected communities

and the Department. We do not anticipate any change in our selection criteria, or in the 

general provisions governing subsidy payments for essential air service.2 

With specific respect to these five communities, we expect proposals consisting of the 

historical level of service or with two round trips per day (twelve per week) at each 

community if 30-seat or larger equipment is provided. We would consider proposals 

offering additional frequencies if the affected community were served in conjunction 

with another community. 

We encourage proposals that meet the communities’ requirements in an efficient manner. 

Carriers are also welcome to propose more than one service option, if they choose; they

need not limit themselves to the current service pattern if they envision other, potentially

more attractive service possibilities – different hubs, or longer terms for the contracted

service – with subsidy requirements that remain competitive.

We encourage carriers to work with the communities in advance of the due date for 

proposals when proposals can still be adjusted so that they can craft them to best meet the 

communities’ needs. In addition, carriers should be very clear as to whether a specific 

community’s proposal may be considered on a stand-alone basis, or whether it should be 

considered as part of a larger, inseparable package with another community. As always, 

 

1 Carriers should not expect the Department to accept late filings. In cases where a carrier proposes to 

provide essential air service without subsidy and we determine that service can be reliably provided without 

such compensation, we do not proceed with the carrier-selection case. Instead, we simply rely on that 

carrier’s subsidy-free service as proposed.

2 In selecting a carrier to provide subsidized essential air service, 49 U.S.C. 41733(c) (1) directs us to 

consider four factors. (1) service reliability; (2) contractual and marketing arrangements with a larger 

carrier at the hub; (3) interline arrangements with a larger carrier at the hub; and (4) community views. In 

addition, The Consolidated Appropriations Act, 2008, Public Law 110-161, provides that when selecting a 

carrier to provide EAS, the Department may consider the relative subsidy requirements, thus codifying a 

factor that we have considered since the inception of the program. Interested carriers should also be aware 

that our general provisions governing essential air service will be included in the selection order as part of 

our authorization of subsidy for the selected service. Appendix C of this order contains those general 

provisions.
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we will fully consider the communities’ views before making a long-term carrierselection decision. 

New Filing Procedures

Carrier proposals should be submitted to the Department with all materials merged into a 

single document. In addition, because the document will be published on 

Regulations.gov, each page should be formatted to be viewed online.

Historical Traffic

In order to assist carriers in making their traffic and revenue projections, we have 

included historical traffic for the communities in Appendix B. For the year ended 

December 31, 2010, the most recent annual period, each community generated daily 

enplaned passengers based on 313 service days per year, as follows: Dodge City, 11.6; 

Garden City, 29.7; Hays, 26.3; Liberal, 13.7; and Great Bend, 2.3.

Other Carrier Requirements

The Department is responsible for implementing various Federal statutes governing lobbying 

activities, drug-free workplaces, and nondiscrimination.3 Consequently, all carriers receiving 

Federal subsidy to support essential air service must certify that they are in compliance with 

Department regulations regarding drug-free workplaces and nondiscrimination, and those 

carriers whose subsidies exceed $100,000 over the life of the rate term must also certify that 

they are in compliance with the regulations governing lobbying activities. Because the 

Department is prohibited from paying subsidy to carriers that do not submit these documents, 

the selected carrier will be required to submit them in order to receive subsidy. Interested 

carriers requiring more detailed information regarding these requirements, as well as copies of 

the certifications, should contact the Office of Aviation Analysis at (202) 366-5903. The 

Department is prohibited from paying subsidy to carriers that do not submit these documents.

Community Comments

Civic officials and the State are welcome to submit comments on the proposals at any time. 

As noted earlier, we will provide a summary of the proposals to the civic parties and ask 

them to submit their final comments shortly after May 2, the due date for carrier proposals.

This order is issued under authority delegated in 49 CFR 1.56a(f) and re-delegated to the 

Director, Office of Aviation Analysis.

ACCORDINGLY,

1. The Department requests proposals from carriers interested in providing essential air 

service at Dodge City, Garden City, Great Bend, Hays, and Liberal, Kansas. Carriers 

should submit their proposals, with subsidy if necessary, by May 2, 2011. Proposals 

should be emailed to EAS@dot.gov, with the title “Proposal to Provide Essential Air 

Service at Dodge City, Garden City, Great Bend, Hays, and Liberal, Kansas, Dockets

DOT-OST-1998-3502, 3503, 3496, 3497, 3498, respectively.” Questions regarding filings 

may be directed to Kevin Adams at 202-366-1047 or Kevin.Adams@dot.gov;

2. These Dockets will remain open until further order of the Department; and

 

3 The certifications are available on the web at http://ostpxweb.dot.gov/aviation/index.html.
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3. We will serve this order on the service list for this Docket.

Persons entitled to petition the Department for review of this order under the 

Department’s Regulations, 14 CFR 385.50, must file such petitions within ten (10) days 

after the date of service of this order. This order will be effective immediately, and the 

filing of a petition for review shall not preclude its effectiveness.

By: 

TODD M. HOMAN

Director

Office of Aviation Analysis

(SEAL)

An electronic version of this document is available on the World Wide Web at

http://www.regulations.gov
Appendix A

Nonstop Great Circle Miles:

To Denver, DEN Other

DDC, Dodge City 292 DDC-GCK 43

GBD, Great Bend 329 DDC-GBD 72

GCK, Garden City 250 DDC-HYS 84

HYS, Hays 297 DDC-LBL 74

LBL, Liberal 279 GBD-HYS 41

GBD-GCK 106

Dallas, DFW LBL-GCK 62

DDC, Dodge City 374

GBD, Great Bend 390

GCK, Garden City 404

HYS, Hays 429

LBL, Liberal 362

Kansas City, MCI

DDC, Dodge City 303

GBD, Great Bend 233

GCK, Garden City 338

HYS, Hays 246

LBL, Liberal 373

Wichita, ICT

DDC, Dodge City 139

GBD, Great Bend 92

GCK, Garden City 181

HYS, Hays, 130

LBL, Liberal 199

This map is provided by Sabre® AirVisionTM Profit Essentials and is being used with express permission of the 

copyright holder, Sabre Airline Solutions®.
Appendix B

Page 1 of 3

Historical Traffic per T-100 Market Report

Enplaned at EAS Community Deplaned at EAS Community Origin and Destination

Kansas Kansas Kansas

Denver City Other Total Denver City Other Total Denver City Other Total

Year &

Quarter Dodge City, Kansas (DDC)

2008 2,616 1,212 38 3,866 2,740 1,251 40 4,031 5,356 2,463 78 7,897

1 565 253 6 824 582 233 12 827 1,147 486 18 1,651

2 669 376 17 1,062 800 310 3 1,113 1,469 686 20 2,175

3 678 294 4 976 666 359 14 1,039 1,344 653 18 2,015

4 704 289 11 1,004 692 349 11 1,052 1,396 638 22 2,056

2009 2,167 1,046 34 3,247 2,249 982 34 3,265 4,416 2,028 68 6,512

1 495 221 9 725 493 229 12 734 988 450 21 1,459

2 495 333 9 837 492 273 3 768 987 606 12 1,605

3 577 281 7 865 602 267 4 873 1,179 548 11 1,738

4 600 211 9 820 662 213 15 890 1,262 424 24 1,710

2010 2,900 681 43 3,624 2,713 827 25 3,565 5,613 1,508 68 7,189

1 577 121 4 702 582 138 2 722 1,159 259 6 1,424

2 733 182 24 939 676 219 12 907 1,409 401 36 1,846

3 768 196 7 971 725 224 9 958 1,493 420 16 1,929

4 822 182 8 1,012 730 246 2 978 1,552 428 10 1,990

Garden City, Kansas (GCK)

2008 7,757 2,555 56 10,368 7,843 2,257 24 10,124 15,600 4,812 80 20,492

1 1,744 534 16 2,294 1,826 466 6 2,298 3,570 1,000 22 4,592

2 2,087 734 6 2,827 2,062 634 10 2,706 4,149 1,368 16 5,533

3 1,963 782 1 2,746 2,032 704 5 2,741 3,995 1,486 6 5,487

4 1,963 505 33 2,501 1,923 453 3 2,379 3,886 958 36 4,880

2009 7,222 1,740 42 9,004 7,132 1,604 19 8,755 14,354 3,344 61 17,759

1 1,636 433 14 2,083 1,766 358 8 2,132 3,402 791 22 4,215

2 1,743 453 5 2,201 1,703 404 3 2,110 3,446 857 8 4,311

3 1,860 461 8 2,329 1,808 429 5 2,242 3,668 890 13 4,571

4 1,983 393 15 2,391 1,855 413 3 2,271 3,838 806 18 4,662

2010 8,189 1,082 36 9,307 8,175 1,078 15 9,268 16,364 2,160 51 18,575

1 1,702 199 12 1,913 1,720 229 6 1,955 3,422 428 18 3,868

2 2,103 319 10 2,432 2,126 284 2 2,412 4,229 603 12 4,844

3 2,156 262 12 2,430 2,159 260 5 2,424 4,315 522 17 4,854

4 2,228 302 2 2,532 2,170 305 2 2,477 4,398 607 4 5,009
Appendix B

Page 2 of 3

Historical Traffic per T-100 Market Report

Enplaned at EAS Community Deplaned at EAS Community Origin and Destination

Kansas Kansas Kansas

Denver City Other Total Denver City Other Total Denver City Other Total

Year &

Quarter Hays, Kansas, (HYS)

2008 5,714 2,462 19 8,195 5,908 2,153 10 8,071 11,622 4,615 29 16,266

1 1,357 581 7 1,945 1,451 525 3 1,979 2,808 1,106 10 3,924

2 1,483 704 11 2,198 1,486 581 0 2,067 2,969 1,285 11 4,265

3 1,434 607 1 2,042 1,630 582 4 2,216 3,064 1,189 5 4,258

4 1,440 570 0 2,010 1,341 465 3 1,809 2,781 1,035 3 3,819

2009 6,394 1,088 12 7,494 6,489 887 3 7,379 12,883 1,975 15 14,873

1 1,201 387 12 1,600 1,330 346 0 1,676 2,531 733 12 3,276

2 1,431 502 0 1,933 1,424 399 0 1,823 2,855 901 0 3,756

3 1,661 199 0 1,860 1,776 142 0 1,918 3,437 341 0 3,778

4 2,101 0 0 2,101 1,959 0 3 1,962 4,060 0 3 4,063

2010 8,214 0 4 8,218 8,155 0 7 8,162 16,369 0 11 16,380

1 1,750 0 0 1,750 1,826 0 1,826 3,576 0 0 3,576

2 2,184 0 4 2,188 2,035 0 4 2,039 4,219 0 8 4,227

3 2,034 0 0 2,034 2,209 0 1 2,210 4,243 0 1 4,244

4 2,246 0 0 2,246 2,085 0 2 2,087 4,331 0 2 4,333

Liberal, Kansas (LBL)

2008 3,685 26 3,711 3,486 10 41 3,537 7,171 10 67 7,248

1 808 7 815 788 0 4 792 1,596 0 11 1,607

2 955 4 959 904 10 5 919 1,859 10 9 1,878

3 958 3 961 873 0 4 877 1,831 0 7 1,838

4 964 12 976 921 0 28 949 1,885 0 40 1,925

2009 3,472 25 3,497 3,480 0 12 3,492 6,952 0 37 6,989

1 792 21 813 762 0 12 774 1,554 0 33 1,587

2 847 0 847 874 0 0 874 1,721 0 0 1,721

3 887 2 889 895 0 895 1,782 0 2 1,784

4 946 2 948 949 0 949 1,895 0 2 1,897

2010 4,267 29 4,296 4,226 0 12 4,238 8,493 0 41 8,534

1 899 2 901 912 0 10 922 1,811 0 12 1,823

2 1,106 14 1,120 1,070 0 1,070 2,176 0 14 2,190

3 1,063 13 1,076 1,114 0 2 1,116 2,177 0 15 2,192

4 1,199 0 1,199 1,130 0 1,130 2,329 0 0 2,329
Appendix B

Page 3 of 3

Historical Traffic per T-100 Market Report

Enplaned at EAS Community Deplaned at EAS Community Origin and Destination

Kansas Kansas Kansas

Denver City Other Total Denver City Other Total Denver City Other Total

Year &

Quarter Great Bend, Kansas (GBD)

2008 402 582 4 988 407 583 49 1,039 809 1,165 53 2,027

1 92 137 2 231 110 175 16 301 202 312 18 532

2 128 179 0 307 114 172 15 301 242 351 15 608

3 86 167 0 253 65 155 2 222 151 322 2 475

4 96 99 2 197 118 81 16 215 214 180 18 412

2009 178 360 2 540 181 390 14 585 359 750 16 1,125

1 91 73 1 165 84 69 2 155 175 142 3 320

2 69 101 1 171 77 93 6 176 146 194 7 347

3 18 84 0 102 20 107 6 133 38 191 6 235

4 0 102 0 102 0 121 0 121 0 223 0 223

2010 611 101 7 719 613 86 35 734 1,224 187 42 1,453

1 0 81 0 81 0 69 0 69 0 150 0 150

2 137 20 4 161 141 17 23 181 278 37 27 342

3 218 0 1 219 246 0 6 252 464 0 7 471

4 256 0 2 258 226 0 6 232 482 0 8 490
Appendix C

Example of General Terms and Conditions for Essential Air Service

The carrier understands that it may forfeit its compensation for any flights that it does not 

operate in conformance with the terms and stipulations of the rate order, including the 

service plans outlined in the order and any other significant elements of the required 

service, without prior approval. The carrier understands that an aircraft take-off and 

landing at its scheduled destination constitutes a completed flight; absent an explanation 

supporting subsidy eligibility for a flight that has not been completed, such as certain 

weather cancellations, only completed flights are considered eligible for subsidy. In 

addition, if the carrier does not schedule or operate its flights in full conformance with the 

order for a significant period, it may jeopardize its entire subsidy claim for the period in 

question. If the carrier contemplates any such changes beyond the scope of the order 

during the applicable period of these rates, it must first notify the Office of Aviation 

Analysis in writing and receive written approval from the Department to be ensured of 

full compensation. Should circumstances warrant, the Department may locate and select 

a replacement carrier to provide service on these routes. The carrier must complete all 

flights that can be safely operated; flights that overfly points for lack of traffic will not be 

compensated. In determining whether subsidy payment for a deviating flight should be 

adjusted or disallowed, the Department will consider the extent to which the goals of the 

program are met and the extent of access to the national air transportation system 

provided to the communities.

If the Department unilaterally, either partially or completely, terminates or reduces 

payments for service or changes service requirements at a specific location provided for 

under this order, then, at the end of the period for which the Department does make 

payments in the stipulated amounts or at the stipulated service levels, the carrier may

cease to provide service to that specific location without regard to any requirement for 

notice of such cessation. Those adjustments in the levels of subsidy and/or service that 

are mutually agreed to in writing by the Department and carrier do not constitute a total 

or partial reduction or cessation of payment.

Subsidy contracts are subject to, and incorporate by reference, relevant statutes and 

Department regulations, as they may be amended from time to time. However, any such 

statutes, regulations, or amendments thereto shall not operate to controvert the foregoing 

paragraph.

Funds are not currently available for performance under this solicitation beyond 

[DATE]. The Department’s obligation for performance under this solicitation beyond 

[DATE], is contingent upon the availability of appropriated funds from which payment 

for services can be made. No legal liability on the part of the Government for any

payment may arise for performance under this order beyond [DATE], until funds are 

made available to the Department for performance. If funds are not made available for 

performance beyond [DATE], the carrier will receive notice in writing by the 

Department.

All claims for payment must be submitted within 60 days of the last day of service 

provided under this ordert