i 

Proposal 

Consortium of West Wendover, Nevada 

United States Department of Transportation 

Office of Aviation Analysis 

Small Community Air Service Development Program 

Application under the: 

 -Wendell H. Ford Aviation Investment and Reform Act for the 21st Century (AIR-21) 

As Reauthorized by the: 

 -Vision 100-Century of Aviation Reauthorization Act 

Proposal Sponsor: Consortium of West Wendover

Contact: Mr. Chris Melville

City Manager

City of West Wendover

1111 Gene L. Jones Way

PO Box 2825

West Wendover, Nevada 89883

Docket: DOT-OST-2011-0119

Date: August 2, 2011
ii 

SMALL COMMUNITY AIR SERVICE DEVELOPMENT PROGRAM 

DOCKET OST-2011-0119 

SUMMARY INFORMATION FOR CONSORTIUM OF WEST WENDOVER: 

A. Applicant Information: 

 _____ Not a Consortium __X___ Intrastate Consortium ____ Interstate Consortium 

 _____ Community Now Receives EAS Subsidy 

__X___ Community (or Consortium member) previously received a SCASDG 

If previous recipient: Date of Grant: __2/2010___ Expiration Date of Grant: __8/2011___ 

 

B. Public/Private Partnership: 

 Public: Private:

 1. City of West Wendover, Nevada 1. West Wendover Chamber 

2. Elko County, Nevada 2. Elko Economic Diversification Auth. 

3. Tooele County, Utah 3. Peppermill Casino

4. White Pine County, Nevada 4. Golden Nugget Casino

5. City of Elko, Nevada 5. Nevada Comm. on Economic Dev. 

6. City of Ely, Nevada 

*Informal or potential members in italics 

C. Project Proposal: 

 __X__ Marketing ______ Upgrade Aircraft __X__ New Route 

 _____ Travel Bank __X__ Service Restoration __X__ Subsidy 

 _____ Surface Transportation _____ Regional Service __X__ Revenue Guarantee 

 __X__ Launch New Carrier __X__ Start-Up Offset Cost ______ First Service 

 _____ Study _____ Secure Addt’l Service ______ Other 

D. Existing Landing Aids at Local Airport: 

 __ Full ILS __ _ Outer/Middle Marker ____ Other 

 __ _ Localizer _X _ Published Instrument Approach (RNAV) 
iii 

E. Project Cost: 

 

Description Sub-Total Total Amount 

Federal Amount Requested $1,000,000 

State cash financial contribution $0 

Local cash financial contribution 

 Airport cash funds $0,000 

 Non-Airport cash funds $50,000 

Total local cash funds $50,000 

TOTAL CASH FUNDING $50,000 

In-kind contribution 

 Airport In-kind contribution $25,000 

 Other In-kind contribution $25,000 

TOTAL IN-KIND CONTRIBUTION $50,000 

TOTAL PROJECT COST $1,100,000 

F. In-Kind Contributions: 

 Airport In-Kind Contribution: Waiver of landing fees, terminal rents and other use fees 

 Other In-Kind Contribution: Administrative and staffing 

G. Is this application subject to review by State under Executive Order 12372 

 Process? 

 

___ a. This application was made available to the State under 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. 

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

H. Is the Applicant Delinquent on any Federal Debt? 

 

_X_ No 

___ Yes (explain) 
iv 

TABLE OF CONTENTS 

Subject Page

Executive Summary 1 

 

Introduction 5 

The Wendover Community 6 

The Wendover Airport 7

Factors That Have Affected Air Service 8 

Market Research 8 

Catchment and Community Profile 9 

Market Analysis 11 

Potential Passengers 11 

Potential Air Service 12 

Proposed Fares and Passenger and Revenue Forecast 13 

Operations Forecast 14 

Action Plan for the Consortium West Wendover 15 

Public-Private Partnership 15 

Project Goals 15 

Action Plan Elements 15 

Marketing Program 15 

Target Audience 15 

Marketing and Media Selection 16 

Total Incentive Package 16 

Sponsor Participation 16 

Performance Measurement 17 

Recruitment of Air Service 17 

Marketing and Media Plan 17 

Air Service Performance 17 

Community Support 17 

Assurances 18 

Appendix A - Letters of Support 

 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 1 

EXECUTIVE SUMMARY 

For purposes of this executive summary, we have identified and summarized the 

bulleted and checked items directly from the 2011 Order to ensure a comprehensive, 

competitive response. The Order says our application should help communities secure 

air service enhancements that will be responsive to their air transportation/air fare 

needs on a long-term basis after the financial support of the grant has ended. 

Specifically, the Order identifies the following items and our response follows each. 

1. Promoting awareness among residents of locally available service. 

Government and business teaming for informal air service recruitment efforts were 

initiated some years ago and continue to today in consortium communities. These ongoing air service and economic development efforts represent almost every local 

constituency, and fully meet the intent and spirit of a public-private partnership. 

2. Attracting a new carrier through revenue guarantees or operating cost offsets. 

As you will read in this application, consortium communities are supporting this air 

service effort by providing $100,000 worth of support. West Wendover has already 

spend in excess of $10,000 to obtain scheduled air service. 

3. Attracting new forms of service, such as on-demand air taxi service. 

While the consortium communities are herein intending to attract scheduled air carrier 

service and this application is written to seek support to make that happen, we believe 

non-scheduled charter activity will continue to be an important part of the each 

consortium communities airport’s suite of services. 

4. Offering an incumbent carrier financial or other incentives to lower its fares, 

increase its frequencies, add new routes, or deploy more suitable aircraft, 

including upgrading its equipment from turboprops to regional jets. 

Although the Wendover Airport does not have an incumbent scheduled service carrier, 

we propose to add a new route in cooperation with existing carriers at consortium 

communities well. 

5. Combining traffic support from surrounding communities with regionalized 

service through one airport; or providing local ground transportation service to 

improve access to air service to the community and the surrounding area. 

The Wendover Airport is an important part of the ability of our business community to 

remain competitive and for the citizenry’s local access to the national air transportation 

system. Consortium communities believes that that this application will only increase in 

scope and role of scheduled air service in the region. 

In addition, the Order notes these as important: 

6. A description of the community's existing air service. 

A detailed description may be found in the Proposal section of this application. 

7. A synopsis of the community's historical service. 

A detailed description may be found in the Proposal section of this application. 

8. A description of the community air service development efforts over the past 

five years and the results of those efforts. 

A detailed description may be found in the Proposal section of this application. 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 2 

9. A description of the community air service needs or deficiencies. 

A detailed description may be found in the Proposal section of this application. 

10. A strategic plan for meeting those needs under the Small Community 

Program, including: 

The Action Plan for consortium communities contains the strategic plan. 

(1) Clear identification of the target audience of each component of the 

proposed transportation initiative, including all advertising and promotional 

efforts. 

The target audience for this application is the business traveler, the local traveling 

public and the leisure/gaming visitor. A series of connections is planned with SLC, 

LAS and RNO with the Wendover, Elko and Ely Airports functioning as a midconnection point. Advertising and marketing is contained in the Action Plan section. 

Ely is currently an EAS-funded facility but has been identified to be cut from EAS. Ely 

would only be included in this program if they lost their EAS funding.

(2) A realistic timetable for implementation of the grant project. 

As outlined in the Action Plan section, initiation of the service would begin as soon as 

the service is funded with the SCASDP grant and coordinated with the airline. 

(3) An explanation of how the service will become self-sufficient. 

As outlined in the Action Plan section, self-sufficiency is demonstrated with a market 

load factor and yield. Advertising, promotions, and a public relations program are all 

part of the marketing program to support the service. 

(4) A clear outline the goals and objectives sought to be achieved. 

The goal is to bring scheduled air service to the West Wendover, Elko and Ely 

communities from SLC, RNO and LAS. 

11. A description of any public-private partnership that will participate in the 

project. 

The Cities of West Wendover, Elko, Ely (consortium communities)and the business 

community (the public-private partnership) represent public and private local interests in 

this regard. Other surrounding counties will also benefit and may be asked to participate 

in the future. 

12. A detailed description of the funding necessary for implementation of the 

service, including the federal and non-federal contributions. 

The grant amount requested is $1,000,000 while airport and community cash and inkind contributions total $400,000 for a total proposal amount of $1,400,000. More details 

are found in the Action Plan section. 

13. An explanation of how the community will ensure that its own funding 

contribution is spent in the manner proposed. 

The public-private partnership will ensure that funds are spent timely and wisely. 

Explanation is found in the Performance Measurement section. 

14. A description of how the community will monitor the progress of the grant 

project and the identity of critical milestones to be met during the life of the grant. 

A description of our responsiveness in this regard found in the Performance 

Measurement section. 

15. A description of how the community plans to continue with the project if it is 

not self-sustaining after the grant award expires. 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 3 

We believe that we have prepared a very strong proposal for DOT consideration. The 

West Wendover public-private partnership will commit to $400,000 in local funds, 

$300,000 of which is local cash. The West Wendover public-private partnership is 

committed to the nine-month start up period and our estimates of demand herein show 

potential for increase in demand as the market matures. 

16. Designation of a legal sponsor responsible for administering the program. 

The public-private partnership with minimal assistance from the business community 

and substantial assistance from the West Wendover City Manager and outside 

consultants will administer the grant and activities outlined in the Action Plan section. 

Finally, the Order indicates that priority will be given to those applicants who 

competitively answer these inquiries: 

17. Air fares are higher than the national average air fares for all communities; 

Given that no scheduled service exists, this question does not apply. 

18. The community or consortium will provide a portion of the cost of the 

activity from local sources other than airport revenue sources. 

The public-private partnership proposes to provide $100,000 of cash and in-kind 

funding for the proposed service over the term of the grant. 

19. The community or consortium has established or will establish a publicprivate partnership to facilitate air carrier service to the public. 

The public-private partnership is established and has engaged air service 

recruitment efforts and strategies. 

20. The assistance will provide material benefits to a broad segment of the 

traveling public, including business, educational institutions, and other 

enterprises, whose access to the air system is limited. 

We expect that the grant will be used to establish a new profitable series of routes 

for an air carrier, a new way for the residents of the West Wendover, Tooele, Elko 

and potentially White Pine Counties and the surrounding counties (catchment 

area) to connect to the national air transportation system and provide for a 

substantial economic benefit to residents and businesses. 

21. The assistance will be used in a timely manner. 

The public-private partnership anticipates that assistance will be drawn on a monthly 

basis until exhausted. 

22. The relative size of each applicant community. 

As can be seen in the Major Issues section of this application, our total catchment area 

is relatively small totaling 37,664 citizens, fitting the spirit and intent of the Small 

Community Air Service Program. 

23. The geographic location of each applicant, including the community's 

proximity to larger centers of air service and low-fare service alternatives. 

Wendover is approximately 120 miles west from Salt Lake City, separated by an 

Interstate 80 drive. Wendover is approximately 400 miles west from Reno, Nevada 

separated by an Interstate 80 drive. Wendover is approximately 370 miles west from 

Las Vegas, Nevada, separated by a State Highway 93 drive. Elko is in between 

Wendover and Reno and Ely is in between Wendover and Las Vegas. 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 4 

24. Whether the community's proposal, if successfully implemented, could 

serve as a working model for other communities. 

Not only do we believe that this model will be successful, but believe variants of this 

model have been successful elsewhere. We hope to refine and improve upon 

previous business models and share that information with those to follow. 

25. Current demographic indicators for the community, such as population, 

income and business activity. 

The Major Issues section contains this information. 

26. The community's demonstrated commitment to and participation in the 

proposed grant project. 

The public-private partnership is committed to attracting an air carrier and we believe 

the service will be sustainable given the market analysis conclusions reached in 

upcoming pages. 

27. The grant amount requested compared with total funds available for all 

communities. 

The public-private partnership believes that our proposed assistance figure is large 

enough to be effectual but small enough to make us competitive given the $15 million 

maximum in available assistance this year. 

28. The proposed federal grant amount requested compared with the local share 

offered. 

The public-private partnership believes that our proposed share is competitive and 

comparable to what may be found in other competitive applications. 

Note: Page six of the Order specifies that communities without existing air service must 

be able to demonstrate the ability to meet certificate requirements. The consortium 

understands that certificate in this instance refers to: 

FAR Part 139. The Wendover, Elko and Ely Airports are currently certified pursuant 

to this regulation and for all practical purposes operates as a Class I commercial 

service airport. 

FAR Part 121/135. Our partner for purposes of this application, Public Charters, is a 

certificated airline pursuant to Part 121. Given that the Wendover Airport received 

commercial service in its past, environmental issues are addressed. 

TSA 1542. The Wendover, Elko and Ely Airports currently have an Airport Security 

Plan and TSA. 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 5 

PROPOSAL OF WEST WENDOVER CONSORTIUM 

Introduction 

The West Wendover, Nevada and Wendover, Utah communities have, for a number of 

years, been preparing the Wendover Airport (ENV) to be a scheduled commercial 

service airport. Joining the Wendover community in the public-private partnership are 

both the Ely and Elko communities. The catchment area includes Tooele County, Utah 

and Elko County, Nevada, with a total market catchment area of approximately nearly 

37,664 people. 

Community leaders believe that commercial service to key hubs will help to continue the 

development of the area gaming business and avail the communities to its 

constituencies. To add new air service an air carrier needs to view consortium 

communities as being more beneficial and profitable to their long-term goals than other 

airports. Airlines are seeking route profitability, good facilities, community support, 

available resources for long-term improvements, and limited competition. Initial or shortterm incentives such as reduced fees, free rents, and promotional funds will be 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 6 

necessary to attract new air service. 

Scheduled commercial air service at consortium communities will produce new jobs and 

bring revenue to the community. Revenue from new air service will create visitor 

expenditures at hotels, restaurants, car rentals, and local shops. The Airport will receive 

new fees in the form of terminal rents, landing fees, fuel flowage fees, and passenger 

facility charges. The new airline will purchase fuel, supplies, and crew meals. All of 

these expenditures will translate into new jobs. 

The passenger forecast indicates that there is a large enough demand to support daily 

jet flights to SLC, LAS and RNO, including EKO and potentially ELY. Utilizing fares 

comparable to the average fares at SLC, flights to these airports using the scheme 

presented herein, are projected to be profitable with 9-seat, B-1900 or EMB-120 aircraft. 

Major Issues 

Due to drastic shifts in the commercial aviation business model, the air traveler in the 

United States has had to endure a much longer transit time through airports, higher load 

factors and poorer service on the airlines. A reduction of flights and seats to many 

markets has occurred a capacity is managed and demand increases. Security 

measures implemented after 9/11 often require air travelers to arrive at an airport two 

hours in advance of departure for domestic flights and three hours in advance of 

departure for international flights. Travelers ticketed on commercial air carriers located 

at hub airports have increasingly endured longer lines for checking in, checking 

baggage and for passing through the security gates. 

To remain competitive and profitable, airlines continue to cut costs through reducing 

employee wages/benefits, staffing levels and discontinuing non-performing routes. 

Morale issues with remaining airline staff have impacted customer service levels with 

the traveling public. Several carriers have exited the industry, while mergers and 

takeovers have affected other major service providers (i.e.-Delta/Northwest; 

Republic/Frontier, etc.). Industry consolidation has been expected for some time but 

seems to be just now gaining momentum while increasing passenger loads continue to 

strain capacity and profitability even in the current economic uncertainty. 

With new marketing strategies to retain market share, increase revenue and enhance 

brand recognition, commercial air service providers are opting to expand air service to 

smaller airports. This program makes it easier for the air traveler that lives or works near 

these smaller airports to more easily reach business or personal destinations and also 

reduces the congestion at the major airports by spreading out the passengers and 

flights to other airports. 

The Wendover Community 

The City of West Wendover, Nevada was awarded a grant on February 18, 2010 from 

the USDOT under the SCASD Program. The City requested a grant for the purpose of 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 7 

completing a study with regard to the development and implementation of a regional 

scheduled air service program at Wendover Airport. 

The Study focused on establishing air service to additional communities in the region, 

Elko and Ely, with flights to Salt Lake City, Reno, and Las Vegas. The Study focused on 

specific regional needs of the market and took an expansive look at air carrier service 

possibilities. 

The City of West Wendover, Nevada and the City of Wendover, Utah (primary 

catchment area) have a relatively small population of 6,679 residents, but are the home 

to over 2,500 hotel and motel rooms. This large room total supports the gaming and 

recreation industry in the area. The Peppermill Resort Company provides a flight charter 

program from over 60 cities to Wendover Airport utilizing XTRA Airways. Allegiant Air 

tookover this service in February 2011 with MD-83 equipment. This program generates 

between 46,000 and 50,000 passengers per year. 

The study addressed the passenger potential for scheduled passenger air service to 

Wendover Airport to be operated in addition to the Allegiant Charter service. Passenger 

forecasts were based upon surveys of the local residents and local businesses. 

Comparisons of economic factors and scheduled passengers for other small airports in 

the region was used as a yardstick to measure the potential of the Wendover Airport 

market. 

The feasibility of scheduled service by various commuter aircraft types was analyzed 

and a determination of profitability was developed. Various airlines were listed as 

potential air carriers for Wendover Airport. The consortium was formed as part of this 

study process. 

The Wendover Airport 

The Wendover Airport is sponsored, owned and operated by Tooele County, Utah. The 

Airport's budget is approved by the Tooele County, and annual surplus/deficient is made 

up solely by the Tooele County. However, West Wendover is the destination for gaming 

visitor. Cash and In-kind contributions made by the City of West Wendover toward this 

grant request are a subsidy of the City. 

The Wendover Airport is designated a Part 139, Class I facility. Wendover Airport has 

completed major improvements to its runways. The Wendover Airport presently 

accommodates charter operations, small cargo, air taxi operations, general aviation, 

aircraft storage, and aircraft maintenance and repair. Wendover Airport abuts Interstate 

80, giving it easy access to all communities in the catchment area. 

The Wendover Airport has an 8,000 foot by 150 foot runway with RNAV and VOR/DME 

instrument approaches. Also has a secondary runway 8,000 foot by 100 foot with 

circling approaches. It can handle all regional jets and standard twin jet aircraft. The 

Airport has a new 10,000 square foot terminal building with three airline ticketing 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 8 

positions, ramp space for two B-737 or three regional jet aircraft, and large passenger 

hold room, space for rental car counters, and a common baggage claim area. Customer 

parking is adjacent to the Terminal and Airport Administration offices are within. The 

Airport provides easy access to all of West Wendover, casinos, hotels,attractions, and 

Interstate 80. 

These are the necessary aviation infrastructure items to safely accommodate airline 

traffic. Initially, passengers will utilize the existing terminal building; with check-in 

counters for airlines, a departure lounge with security and a common baggage claim 

area all exist within the building. Discussions with TSA regarding space, security 

equipment and personnel have already occurred and await a scheduled carrier. 

Factors That Have Affected Air Service 

Wendover is a tourist destination with casinos, entertainment, golf, nature tours, and 

outdoor activities. Leisure and recreation activities include golf, hiking, auto and 

motorcycle speed racing, ATV activities, fishing, softball and soccer tournaments. 

Consortium economies have expanded in a big way with mining and natural resources 

development. Also occurring is development of warehousing and storage and light 

manufacturing. Consortium communities are functionally a low cost alternative to Reno, 

Salt Lake City and other markets in the region. 

The Wendover community is home to five casinos and a new 1,000 seat entertainment 

center. The catchment area has approximately 2,500 hotel and motel rooms with low 

rates ranging from $29 to $69 per night.The Nugget, Peppermill, Rainbow, and Montego 

Bay all have conference facilities. 

Market Research 

Over thirty businesses and organizations were contacted to participate in a telephone 

survey to determine travel needs and patterns in Wendover. Fifteen participated and 

these are the findings: 

1. Over 70% did not have a need for air travel for business, they tended to drive for 

business travel, likely to SLC. 

2. Most requested destination was Las Vegas followed by Reno, points in California 

and Denver. 75% used Salt Lake City and 25% used Elko. 

3. Over 75% of the respondents use air travel for pleasure/holiday trips. 

Destinations include Mexico, East Coast, points in California. 

4. Over 75% of respondents book their own travel. Airline selection was based on 

lowest fare.The respondents liked Southwest’s “Bag Fly Free” program. Business 

visitors to Wendover use SLC as the airport of choice and then travel by car. 

5. No particular point of origin for visiting air travelers. Field sales representatives 

seem to be visiting Wendover as part of a sales trip that includes other cities and 

communities. 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 9 

6. The respondents did not object to flying in commuter aircraft but want flight 

reliability, good schedule, and affordable flights. 

7. Flights to Las Vegas should be priced in the $100 to $150 range. Free parking 

and ease of security at Wendover Airport are key advantages. 

A online travel survey via Zoomerang was completed to determine market 

characteristics. Respondents were given 24 questions to answer regarding their air 

travel needs. 104 local residents responded to the survey. Respondents to the survey 

were eligible to win prizes at a drawing on October 15. The survey indicated: 

1. Of the past five trips, respondents stated that only 4% of the trips 

were for business. Almost all travel by automobile. Few of the respondents 

receive vendors or customers visiting by air. 

2. Over 80% of the respondents are familiar with Wendover Airport and 98% are 

interested in airline service at the airport. Over 80% of respondents take 12 or 

less trips per year. 

3. The most requested destinations are Salt Lake City, Las Vegas, and Reno. Of 

these three, Salt Lake City accounted for 38%, Las Vegas accounted for 34% 

and Reno accounted for 28%. Respondents were willing to pay up to $150 per 

trip for air service. 

4. More than half of the respondents traveled by air during the past 12 months and 

most respondents booked their own travel (92%). Respondents generally 

indicated no issue with traveling via commuter aircraft. 

5. The airline most frequently used was Delta/Sky West at 40%, with Southwest 

second at 28%. Over 90% of the respondents said they would support new air 

service at Wendover Airport with over 90% willing to participate in a pre-purchase 

ticket program. 

Catchment Area and Community Profile 

The Wendover Airport is a convenient airport for the residents of western Utah, 

northeastern Nevada and the gaming visitor. The primary Wendover Airport catchment 

area encompasses a population of approximately 8,325. Catchment area population 

growth averaged 5.8% from 2000 to 2008. Household income and per capita income 

totaled $41,587 and $14,465, respectively. The median age is 23.85 years and the 

average household size is 3.52 persons. 

Primary Market Population

West Wendover, NV 4,954 

Wendover, UT 1,725 

Wells, NV 1,300 

Oasis, NV 30 

Montello, NV 216 

Pilot Valley, NV 100 

Sub Total 8,325 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 10 

Secondary Market Population

Elko, NV 16,708 

Spring Creek, NV 10,584 

Carlin, NV 2,083 

Sub Total 29,339 

Grand Total 37,664 

Catchment area hotels rooms number 2,500. 

West Wendover Hotels Rooms Wendover Hotels Rooms

Montego Bay 558 Motel 6 130 

Nugget 492 Quality Inn 101 

Peppermill 302 Bonneville Motel 85 

Rainbow 427 Days Inn 80 

Red Garter 106 Heritage 52 

America’s Best Value 80 Western Ridge 52 

Total 1,965 Salt Flats Inn 24 

 Western Motel 20 

 Total 544 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 11 

MARKET ANALYSIS 

The consortium market area exhibits the characteristics of other gaming destination 

markets like Branson, MO. 

The catchment area is experiencing positive economic growth, and citizens and 

businesses in the area are seeking a more convenient way to travel by commercial 

airline than the major airport. 

There is a bit of a drive from the market area to SLC and LAS and especially RNO and 

this creates longer driving times, extra hassle and adds to area pollution. 

Given a mature air service market along with the primary catchment area 

demographics, market potential can effectively accommodate a substantial number of 

passengers and markets. 

Potential Passengers 

The consortium catchment area for includes all of Elko County and the western part of 

Tooele County, and potentially White Pine County. Even though the area is large, the 

population is sparse in comparison to other markets. The primary market for Wendover 

has been estimated to be 8,325 residents (excluding White Pine County) with a beyond 

market of 29,339 residents. 

West Wendover and Wendover have a service based economy with tourism as the 

primary market. There are over 2,500 hotel and motel rooms in the area supporting the 

casino’s and the recreation market. Expected growth is in in mining and natural 

resources. West Wendover can be a low cost alternative to Reno, Salt Lake City and 

other mountain west markets for business. 

The Wendover Airport catchment area has about the same population as Page, AZ; 

Alamosa, CO; Cortez, CO; Ely, NV; Wolf Point, MT and Worland, WY; all Essential Air 

Service markets that receive subsidy. 

The current enplaned passengers at Wendover Airport is greater than the enplaned 

passengers for Page, Twin Falls, Elko, Cedar City, and Vernal. This is due to the strong 

Allegiant charter program. Elko Airport has had good passenger participation when it 

had nonstop service to Reno and continues to have sub-optimal loads to Salt Lake City. 

Ely Airport did best when Scenic Airlines operated the B-1900 aircraft to North Las 

Vegas Airport in 2005/2006. 

Two surveys were conducted to determine air travel trends of local residents and local 

businesses. Both surveys indicated a low demand for business travel by air, but 

respondents would use air service for leisure travel needs. Key destinations were Las 

Vegas, Reno, points in California and Denver. Respondents would use Salt Lake City as 

a connecting airport. 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 12 

Since there was no historical scheduled airline passenger data for Wendover Airport 

and there is no passenger booking data for the region, the passenger forecast is based 

on economic allocation, survey of customers, casino/hotel inbound customers, and 

comparisons to similar markets. 

The forecast based on economic allocation and comparison to similar markets resulted 

in a passenger forecast for Wendover of 7,500 to 18,600 per year. Based on allocation 

per hotel room, the forecast jumps to 46,000 passengers. To be conservative, the 

18,600 passengers per year was used. The allocation of passengers by route to Salt 

Lake City, Reno and Las Vegas was based on the customer survey and proposed 

flights to each market. 

It is recommended that initial air service be provided with small turbo prop aircraft in the 

9 to 10 passenger configuration. This will limit initial risk. If the passenger demand is 

greater that what is projected, then the air service can be upgraded to 19 seat turbo 

prop aircraft. 

Potential Air Service 

Potential airlines and markets are as follows: Nine Seat Aircraft: Public Charters, Grant 

Aviation, Pacific Wings, Pen Air, Sea Coast, Wright Air. 19-Seat Aircraft: Great Lakes, 

Vision Air. 3-Seat Aircraft: Sky West, Cape Air. 

A decision was reached to solicit Public Charter for the routes. This carrier has the right 

equipment for introductory service and has a fantastic potential for success. It is thought 

that initial air service would be provided with small turbo prop aircraft in the 9 to 10 

passenger configuration. This will limit initial risk. If the passenger demand is greater 

that what is projected, then the air service can be upgraded to 19 seat turbo prop 

aircraft. 

Consortium and Public Charter representatives met at the recent Jumpstart Conference 

to discuss the proposal. Public Charter executive staff indicated a willingness to 

investigate the proposal and consortium representatives will again meet to flesh out 

details. The Consortium feels that Public Charter is supportive of the proposal, but 

simply needs a bit more time to finalize market planning. Public Charter has provided a 

support letter found in the Appendix following this narrative. 

Both Public Charter and the consortium agree that there will be a ramp-up period of 

passengers and revenue until the carrier reaches an anticipated market share. In this 

instance, it is assumed that the ramp-up period will take approximately six months. 

Following is a sample schedule that may well meet local needs as well as connecting 

needs: 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 13 

POTENTIAL SCHEDULE INCLUDING ELY, NEVADA 

Market Depart Arrive Stops Frequency

Wendover - Las Vegas 10:00 am 11:15 am 1 Daily 

Las Vegas - Wendover 11:45 am 3:05 pm 1 Daily 

Wendover - Reno 7:00 am 8:10 am 1 ex. Sun 

 5:00 pm 6:10 pm 1 ex. Sat 

Reno - Wendover 8:30 am 11:35 am 1 ex. Sun 

 6:40 pm 9:45 pm 1 ex. Sat 

Wendover - Salt Lake City 11:55 am 12:25 pm 0 Daily 

 3:30 pm 4:00 pm 0 Daily 

Salt Lake City - Wendover 1:00 pm 1:30 pm 0 Daily 

 4:30 pm 5:00 pm 0 Daily 

Note: ENV and SLC are MT, LAS, RNO and EKO are PT. 

Proposed Fares and Passenger and Revenue Forecast 

ENV-EKO-RNO ENV-RNO EKO-RNO Total

Passengers 6,160 7,740 13,900 

Average Fare $125 $104 

Passenger Revenue $770,000 $804,960 $1,574,960 

Other Revenue $7,700 $8,050 $15,750 

Total Revenue $777,700 $813,010 $1,590,710 

ENV-ELY-LAS ENV-LAS ELY-LAS Total

Passengers 4,020 3,500 7,520 

Average Fare $125 $100 

Passenger Revenue $502,500 $350,000 $852,500 

Other Revenue $5,025 $3,500 $8,525 

Total Revenue $507,525 $353,500 $861,025 

ENV-SLC 

Passengers 8,420 

Average Fare $99 

Passenger Revenue $833,580 

Other Revenue $8,335 

Total Revenue $841,915 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 14 

Operations Forecast 

Using Public Charter’s 9-seat Cessna Caravan 4,565 block hours is estimated: 

 Annual Block Block 

Caravan FlightsTime Hours

Wendover - Ely 730 0.6 438 

Ely - Las Vegas 730 1.4 1,022 

Wendover - Elko 1,250 0.5 625 

Elko - Reno 1,250 1.4 1,750 

Wendover - Salt Lake City 1,460 0.5 730

Total 5,420 4,565 

Or, using larger capacity aircraft, 4,070 block hours is estimated: 

B-1900 & Annual Block Block 

EMB-120 Flights Time Hours

Wendover - Ely 730 0.5 365 

Ely - Las Vegas 730 1.25 913 

Wendover - Elko 1,250 0.4 500 

Elko - Reno 1,250 1.25 1,562 

Wendover - Salt Lake City 1,460 0.5 730

Total 5,420 4,070 

Then using the route scheme from the previous page, the need for a $1.3± million dollar 

subsidy using the 9-seat equipment can be substantiated. Although the below shows a 

surplus of $1.3 million, this number includes using Ely’s EAS subsidy funding and a 

$500,000 air service development grant from the State of Nevada for EKO neither of 

which may materialize for purposes of this application. Should these two funding 

sources be removed the $1.3± million surplus would turn to a $1.1± million deficient. 

Route Caravan B-1900 EMB-120

Wendover - Ely - Las Vegas $1,047,025 $635,725 $188,425 

Wendover - Elko - Reno ($46,790) ($692,990) ($1,414,690) 

Wendover - Salt Lake City $184,915 ($143,585) ($399,085)

Total $1,278,730 ($200,850) ($1,625,350) 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 15 

ACTION PLAN FOR THE CONSORTIUM OF WEST WENDOVER 

Public-Private Partnership 

The Consortium of West Wendover’s action plan will be administered through its City 

Manager, Mr. Chris Melville. The consortium member chamber’s and their members 

constitute the private portion of the Partnership’s consortium. Members of the Chamber 

are key leaders from businesses in the consortuim area. Both the consortium and the 

partnership know that continued economic development depends on scheduled air 

service with connecting flights. 

The consortium is committed to completing the following Action. The West Wendover 

City Manager will administer this program with Partnership guidance. The City Manager 

and staff will execute all federal grant offers and process all associated reimbursement 

requests. 

Project Goals 

The goal of the Partnership is to establish scheduled air service with Public Charters via 

Wendover Airport to SLC, RNO and LAS, including ELY and EKO. Scheduled air 

service will allow the community to better compete for new business and allow the 

businesses, industry, government organizations and the gaming community as a whole 

to significantly reduce the amount of travel time and hassle required. 

Action Plan Elements 

The goal of the Action Plan is to address issues associated with the proposed air 

service that are critical to the long-term success of that service. In this regard, this 

Action Plan will address these elements for the City of West Wendover: 

1. Recruit new air service for Wendover from Public Charters. 

2. Market, promote, and support new air service; spread the word around the 

catchment area. 

3. Secure additional revenue to support airline service. 

Marketing Program 

The advertising, promotions, public relations program are all part of the marketing 

program to support new air service. The target market for the proposed service is the 

business and the leisure/gaming traveler. New marketing dollars will be spent in the 

local Wendover, Elko and Ely areas. The marketing in these areas will include 

advertising, promotions, and public relations in the local community. These mediums will 

be combined in a campaign to introduce the new air service. 

Target Audience 

The target audience for the new air service is the business and leisure traveler. The 

most effective way to contact this audience is by targeting its consumer at a critical time. 

All of these targets can be approached utilizing the same advertising media. For a 

market like Wendover, Ely or Elko, the use of television, radio, newspaper, and outdoor 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 16 

are the best media. Even though television is the best media for reaching the leisure 

market, the small amount of air service that will be offered makes television not a suboptimally cost effective media. The Wendover community will find that a combination of 

local radio, newspaper, and outdoor billboards will be the most cost effective approach 

to an advertising program. This should also be supplemented with a direct mail program 

and a series of press releases. 

Marketing and Media Selection 

Consortium communities’ constituencies can best be reached by using local newspaper, 

outdoor, direct mail, and the internet. Upon review of the local medium for the each 

market, the following is proposed. Run advertisements in the Salt Lake Tribune, Deseret 

News, the Ely Times, the Elko Nevada News, along with the Wendover Times and on 

various local radio stations along with the network affiliate television stations. 

The consortium will coordinate a direct mail program to its constituencies and to other 

businesses in the surrounding areas. The development of a promotion with area 

businesses with promotional material at the airport will also be undertaken. A public 

relations specialist will be retained to issue press releases and handle press relations. 

Total Incentive Package 

In order to attract the air service from Public Charters an incentive package has been 

established which would be supportive of their new air service and reduce the risk of 

this new air service. The total incentive package developed herein includes: flight 

guarantees to off-set initial operating losses, funds for marketing and advertising, and 

waiver of certain airport fees. 

TOTAL INCENTIVE PACKAGE FOR NEW AIR SERVICE 

Category Estimated Cost

SCASDP Grant $1,000,000 

Consortium Cash Contribution $50,000 

Consortium In-Kind Contribution $50,000 

Total Package Costs $1,100,000 

Sponsors Participation 

The consortium agrees to manage the In-kind program and obtain at least $50,000 in 

trade. The Small Community Air Service Development grant is proposed to cover 

$1,000,000 of the total proposed and the remaining $50,000 in cash shall be used for 

either further subsidy or other expenses. 

 

Upon the award of this requested grant, the consortium is prepared to launch a drive to 

sell tickets in advance under a “travel bank” program and develop a barter program from 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 17 

local businesses to fund the marketing, advertising, and public relations for the new air 

service. The consortium will offer an attractive fee program for the first six months of 

service. 

PERFORMANCE MEASUREMENT 

Recruitment of Air Service 

City of West Wendover representatives and Public Charters representatives met at the 

recent Jumpstart Conference to discuss the proposal. Public Charters executive staff 

indicated a willingness to investigate the proposal and consotrium representatives will 

again meet with Public Charters staff to flesh out details. West Wendover feels that 

Public Charters is supportive of the proposal, but simply needs a bit more time to 

finalize market planning. Public Charters has provided a support letter found in the 

Appendix following this narrative. 

Marketing and Media Plan 

The consortium will work within the each community and with a marketing firm to 

develop a marketing and media plan to support this new air service. This plan will be 

shared and coordinated through Public Charters. 

Air Service Performance 

The consortium will need Public Charters to provide monthly reports listing the number 

of passengers carried in all directions, the number of flights flown, the passenger 

revenue for the month, other revenue for the month, and the cost of the operation. The 

consortium will cover the shortfall of any monthly loss until the grant money has been 

exhausted. If the carrier achieves profitability earlier than projected, then the cost offset 

funds will be either be transferred to supplement marketing and advertising for the air 

service or be refunded to the US DOT. If Public Charters continues to need some form 

of incentive after the grant funds have been expended, the consortium will continue to 

provide marketing and advertising for Public Charters and the consortium will continue 

to offer lower fees. 

COMMUNITY SUPPORT 

Resolutions supporting the proposal of the consortium communities and letters of 

support from Nevada and Utah’s key congressional delegation and state and local 

lawmakers are included in the Appendices. Various civic and business organizations in 

the each consortium communities’ area have also submitted letters and resolutions 

supporting this proposal and scheduled air service for Wendover Airport and these are 

included in the Appendices. 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 18 

ASSURANCES 

The Consortium of West Wendover hereby provides the U.S. Department of 

Transportation with the following assurances: 

1. It will comply with all of the applicable Federal laws, regulations, executive 

orders, policies, guidelines, and requirements as they relate to the application, 

acceptance, and use of the Federal funds for this project. 

2. It has legal authority to apply for the grant, and to finance and carry out the 

proposed project; that a resolution, motion, or similar action has been duly 

adopted or passed as an official act of the applicant’s governing body authorizing 

the filing of the application, including all understanding and assurances contained 

herein, and directing and authorizing the person identified as the official 

representative of the applicant to act in connection with the application and to 

provide such additional information as may be required. 

3. It has access to the funds available for that portion of the project costs, which are 

not to be paid by the United States government. It has sufficient funds to assure 

operating and maintenance of items funded under the grant agreement, which it 

will own or control. 

4. It shall keep all project accounts and records which fully disclose the amount and 

disposition by the recipient of the proceeds of the grant, the total cost of the 

project in connection with which the grant is given or used, and the amount or 

nature of that portion of the cost of the project supplied by other sources, and 

such other financial records pertinent to the project. The accounts and records 

shall be kept in accordance with an accounting system that will facilitate an 

effective audit in accordance with the Single Audit Act of 1984. 

5. It shall make available for the purpose of audit and examination, any books, 

documents, papers, and records of the recipient that are pertinent to the grant. 

6. It will execute the project in accordance with the approved program narrative 

contained in the project application or with the modifications similarly approved. 

7. It will furnish quarterly reports as required pertaining to the project and activities. 
Consortuim of West Wendover, Nevada 

2011 Small Community Air Service Development Program 

Application Narrative 

 19 

APPENDIX A