Page 1 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Small Community Air Service Development Program

DOCKET DOT-OST-2011-0119

Application from the Town of Massena, New York

Submitted July 30, 2011

GRANT PROPOSAL 

Background

This application is being filed by the Town of Massena as an Essential Air Services (EAS) 

community that currently receives subsidized air service under the EAS program. This proposal 

is limited to the marketing and promotion of EAS service at our airport, which is currently 

provided by Cape Air. The Town understands that EAS-subsidized communities such as ours 

cannot use grant funds to support any new, competing air service, and that no funds can be 

authorized to support additional flights by EAS carriers or changes to those carriers’ existing 

schedules, in order to avoid conflict with the EAS program.

This application builds upon the success we achieved in a prior SCASDP funding round. In 2005, 

the Town of Massena received a $400,000 Small Community Air Service grant, which was 

awarded to help the community market the Massena International Airport and to develop 

sustainable service. 

For the reasons explained below, the grant was extended for an additional one-year term (for a 

total of four years), a final report was filed in December of 2009, and the Town has received the 

full reimbursement of all withheld funds from DOT. 

During the course of the 2005 grant period, the community experienced two serious setbacks

that delayed our ability to carry out our original grant objectives:

 The EAS carrier serving our region, Big Sky, ceased its services to our airport during the first 

year of its contract, leaving our airport with no air service at all for eight months, until a 

replacement carrier, Cape Air, was able to commence service. 

 The Seaway International Bridge that connects Massena to Cornwall, Ontario, was 

unexpectedly closed by a Mohawk protest demonstration for six weeks; this occurred on 

the day we held our first Canadian marketing event for a campaign which emphasized the 

easy connections between Cornwall and the Massena International Airport, which is “right 

across the bridge.”

These unforeseen difficulties seriously limited and delayed airport marketing efforts, as we had 

to switch gears to focus on crisis management and attracting a new carrier, and obviously could 

not market the airport until a new carrier was in place and the bridge was open again. 
Page 2 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Despite these obstacles, a number of key strategies were implemented, which collectively 

provide a strong foundation for the activities proposed in this grant application:

 We gathered the data needed to demonstrate that Massena had the airport infrastructure, 

location and the catchment area size to transition out of the EAS system over time.

 From our outreach to carriers, we learned we needed to increase our EAS numbers 

substantially before our current EAS carrier, or others, would consider bringing sustainable 

service to our airport.

 We learned how to work with airlines, and recruited a team of community leaders to 

support air service development and who participated in our first ever market presentation 

to an airline company.

 We created a new airport website (www.massenainternationalairport.com), built 

relationships with the major travel users in our catchment area, and implemented a

marketing campaign to promote the airport throughout the region. 

Unfortunately, we reached the end of the extended 2005 grant award period just when these 

efforts were beginning to bear fruit.

The funding we are requesting in this SCASDP grant application would be used to build upon 

the foundation laid in the 2005 grant period and is focused on the requirement that EAS 

airports must apply for funding only to market their EAS service. That objective is exactly in line 

with where we need to go next with our airport, as we have identified increasing our EAS 

ridership as the next step for developing our air service market.

With continued U.S. DOT investment, we will:

 Implement a comprehensive and sustained traditional and new media campaign to market 

and promote Massena’s existing EAS service to local residents – thus building on the 

Massena International Airport brand awareness established under the first grant, and 

“lessons learned” from our first promotional campaign.

 Work with university partners to develop additional creative promotional approaches to 

attract increased ridership from these large travel users.

 Work with the economic development agencies and interests in the region to increase 

business use of the airport by current and emerging drivers for economic growth.

 Broaden marketing efforts beyond the local region to attract the additional passengers 

needed to increase enplanements to the 7,500 level or more.
Page 3 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Since we received our first Small Community Air Service grant, Massena has experienced the 

closure of one of our major employers, a General Motors plant which had operated here for 

nearly 50 years. Economic development in Massena and Northern New York has lagged behind 

the rest of the state and nation for decades, and this plant closure has been an additional blow. 

Transportation barriers have been identified as one of the key reasons for the region’s lack of 

development. 

With DOT funding to help us launch an aggressive EAS marketing campaign at this time, we will:

 Ensure that the DOT will get the most return for the EAS subsidy dollars it provides to the 

Massena International Airport.

 Achieve the milestones of first reaching 5,000 and then 7,500 enplanements by the end of 

the grant period.

 Tackle one of the key transportation barriers limiting our region’s economic growth.

 Provide Massena with a rallying point for promoting the community at a difficult economic 

time.

 Use air service as a catalyst for initiating new economic development strategies for Massena 

as a Canadian border community.

“Gateway of the St. Lawrence Valley”
Page 4 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Description of Existing Air Service

 Carrier – Massena is currently served by Cape Air, an employee-owned company founded in 

1989 that has been recognized by the FAA with a Diamond Award for Aircraft Maintenance. 

Cape Air partners with at least 20 major airlines and has codeshares with Continental, Jet 

Blue and American Airlines. The third EAS provider to serve Massena over the last six years, 

Cape Air is widely credited for restoring confidence at Massena and the four other airports 

it serves in Northern New York under the EAS program, after a period in which all 

communities endured very poor service from Big Sky Airlines, and then no service at all 

when that airline ceased operations nine months into its EAS contract. 

 

 Service frequency – Cape Air runs three flights daily, seven days a week (21 weekly 

departures). Flights are staggered to accommodate arrivals and departures at different 

times – flights leave at 7:07 AM, 12:57 PM and 5:06 PM; return flights arrive at 11:35 AM, 

3:36 PM and 7:45 PM. 

 Nonstop destinations – Cape Air provides non-stop service between Massena and Albany, 

New York. Albany is a destination that has been requested by air travelers in the region 

since 2004. Cape Air is the first EAS carrier to make this interest the basis for their EAS 

proposal. The Albany service has become a popular shuttle service between the Massena 

region and the State Capital, eliminating a four-hour drive through the Adirondacks for 

meetings, working with elected officials and state agencies, or connecting with the national 

air transportation system to reach destinations throughout the country. 

In 2010, Cape Air introduced flights from Massena to Boston, with a stop in Albany. 

Currently, passengers are offered three daily flights to Boston and three return trip 

opportunities. The introduction of Boston service has boosted enplanement numbers, as 

our local rural residents can now reach two destinations that meet their air travel needs and 

interests. As a result, enplanements achieved the 700 passengers/month level for each 

month in the last quarter, and topped the 800 passenger level by mid-July. 

 Fares – Cape Air offers a $69.50 one-way fare, and runs periodic $99 round trip ticket 

specials; Boston flights are $104.95 for departures and $94.50 on the return – so passengers 

can travel to and from the U.S. East Coast for only $200. Cape Air also offers discount 

pricing for those purchasing books of tickets for frequent travel. For example, Cape Air’s 

10-ticket discount commuter book for travel between Massena and Albany is $499; 

commuter books for travel between Massena and Boston are $849.

 Equipment types – Cape Air operates Cessna 402s, which fits with the airline’s focus on 

serving island communities and small EAS markets. While some have expressed a 

preference for larger planes, area travelers understand the size of the aircraft is adequate 

for short flights to Albany, or for the jump from Albany to Boston. 
Page 5 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Synopsis of the History of Air Service in Massena

Service to Massena has historically required an EAS subsidy. Through 2006, Massena was

served by US Airways Express (MESA Airlines), which operated weekday, small turboprop 

services to Pittsburgh with stops in Massena, Ogdensburg and Watertown. This service was 

acceptable at the time that Alcoa (our major employer) required frequent travel to Pittsburgh, 

and when US Airways operated a connecting hub there. As both of these elements were 

eliminated, Pittsburgh fell out of favor as a destination by local air travelers, who had also 

become increasingly intolerant of the up-and-down nature of the flight that made three stops 

in the region at communities people could reach faster by car, before reaching a hub. 

In the early part of the 2000 decade, local elected officials began to lobby MESA and DOT to 

eliminate the three-stop schedule, and to make Albany the destination for flights out of 

Massena. To support their efforts, officials commissioned a survey in 2002 by the Merwin Rural 

Services Institute of SUNY Potsdam to document the travel destination interests of local air 

travelers. A total of 82 businesses and institutions in St. Lawrence County provided these 

responses:

 Nearly 70% would be more likely to use local air service if the destination hub were changed 

from Pittsburgh to Albany. 

 Nearly 75% were currently traveling out of the region, to Syracuse or Canada, to board 

flights, despite the higher taxes and fees involved that make the cost of Canadian air travel 

very steep. 

 72% identified Albany as one of their top three regular travel destinations.

 Less than 30% indicated that they utilized local air service at any level; for the majority, an

out-of-county airport was used in order to reach a destination other than Pittsburgh.

 Additional traffic leakage from the St. Lawrence catchment area occurred due to travelers

choosing to drive, rather than fly, to their destinations; the lack of flights to Albany left 

travelers with no other option than driving for meetings and business in the state capital.

Armed with this data, officials in Massena and surrounding areas solicited letters of support to 

change the destination for Massena flights to Albany. Letters were received from leading 

industries, institutions of higher education and officials at all levels of government, as well as 

from the region’s state and federal elected representatives. The switch in hubs was also

supported by the St. Regis Mohawk Tribe, General Motors Powertrain Group and the New York 

Power Authority.

Despite having this ammunition, the community was unsuccessful in lobbying to change the 

destination to Albany in the 2003 EAS bidding round. As a result, MESA continued to fly planes 

that were largely empty, while local travelers incurred the added costs, frustration and 3-4 hour 

drive times to airports, or longer drives to other destinations, because of poor EAS service.
Page 6 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Frustration with MESA, as well as the efforts of a local entrepreneur, eventually led to a more 

organized, aggressive and collaborative effort to improve air service in Massena. Efforts were 

given a significant boost in July 2004, when the entrepreneur worked with Bombardier to bring 

a small jet into Massena which was used to take community leaders from throughout St. 

Lawrence County on a round trip flight to Binghamton, New York; this “consciousness raising” 

effort woke up the region to the possibility that better air service could be had, and led directly 

to the founding of the St. Lawrence Valley Air Task Force.

Co-chaired by the Business Development Corporation for a Greater Massena and the St. 

Lawrence County Chamber of Commerce, the Air Task Force eventually numbered 20 and 

included representation from several local governments, county interests, educational 

institutions, unions, travel agencies and economic development agencies. 

The Air Task Force operated from 2004 to 2009, and initiated a number of air service 

development efforts, which are summarized starting on page 8. Most importantly, the Task 

Force served as the coordinating body for joint meetings of all five EAS airports in the region to 

work together in transitioning EAS service from MESA’s multi-stop flights to Pittsburgh to a 

different, more favored destination. In the next round of EAS bidding, the five EAS-served 

communities jointly backed Big Sky Airlines’ proposal to serve Boston. In April of 2007, Big Sky 

initiated four roundtrip flights to Boston with connecting service through Delta, on Beechcraft 

1900D turboprops, from Massena and the four other EAS airports in the region. 

Big Sky’s arrival was well received – the official launch event in Massena drew a standing room 

only crowd, and ticket sales at the introductory price of $99 were strong. Unfortunately, there 

were also early indicators that Big Sky had bitten off more than it could chew in expanding into 

the northeast – its relationship with Delta proved to be problematic, and internal changes at Big 

Sky, including the loss of key personnel, soon began to impact customer service. Air Task Force 

members met as early as late May to resolve concerns, but the problems continued to grow 

throughout the summer and fall. By the end of the year, financial difficulties, weather 

problems in Boston, difficulty in booking flights through Delta’s reservation system, customer 

complaints, political fallout, and negative media coverage all combined to create a “perfect 

storm” that shut down Big Sky’s northeast service offerings in December of 2007. 

Air Task Force organizers mobilized over the year-end holidays to advocate for affected 

passengers, to keep the community informed, and to coordinate region-wide efforts to secure a 

new provider by working with federal officials, NYS DOT, U.S. DOT and all EAS airport owners. 

Cape Air was retained as the new EAS carrier in March of 2008, and began phasing in their 

service at all airports in the Northern New York region. For Massena, this meant a start date of 

September, 2008. After eight months without any flights at all, local residents were welcoming, 

especially due to Cape Air’s decision to finally provide travelers out of Massena with their 

destination of choice, by offering direct flights to Albany. After the negative experience with 

Big Sky, travelers were also more willing to accept Cape Air’s 9-seat planes, even though this 

was a smaller craft than some travelers preferred.
Page 7 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

As Cape Air was awarded service in 2008 under an emergency order, Massena’s EAS contract 

was rebid in 2010. The EAS bid process drew three airlines, and prompted much interest and 

debate in the local community. An offer by Gulf Stream was favored by those who preferred 

their proposal to bring in larger planes that would provide direct flights to Boston. A new EAS 

entrant, Charter Air Transport, emerged which drew both interest and skepticism, as they were 

offering an innovative, but untested approach to using charter services to meet EAS needs. 

Cape Air proposed continued service to Albany, along with introducing service to Boston via 

Albany. The airline also proposed setting up a local ticket office to enhance their service to the 

community. Town officials were clearly torn between the opportunity for larger planes and 

direct flights to a national hub versus their trust in and appreciation of Cape Air’s stability and

their proven track record of reliable service and community partnership. After much debate, 

and two votes, Cape Air won the community’s recommendation. 

Since the start of a new round of EAS service in 2010, Cape Air’s enplanements in Massena have 

continued to show stable and steady growth. The combination of flights to Albany and the 

addition of the Boston destination provide Massena with the potential to reach 5,000 

enplanements this year. Working with the Town, and with the additional marketing dollars 

requested in this grant, Cape Air officials have indicated they are optimistic of reaching 5,000 

enplanements again in 2012, and of reaching 7,500 enplanements or more by the end of 2014.

Enplanement data for Massena from January of 2000 to July of 2011 (see chart on next page) 

reflects the fluctuating numbers experienced at the end of the MESA years, the positive and 

negative response of the community to Big Sky at the start and finish of its service to Massena, 

and the growth in enplanement numbers that the Albany and Boston destinations, reliable 

service, and good customer service of Cape Air have generated. 
Page 8 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

MONTHLY PASSENGER ENPLANEMENT REPORT (2000 compared to Jan. 2003 – June, 2011)

MASSENA INTERNATIONAL AIRPORT, MASSENA, NY

MESA No Serv.

MESA MESA MESA MESA MESA

Big 

Sky C. Air C. Air C. Air C. Air

2000 2003 2004 2005 2006 2007 2008 2009 2010 2011

January 300 220 238 312 252 197 0 270 260 219

February 293 187 271 317 240 177 0 267 234 209

March 318 204 270 372 274 193 0 285 269 295

1st QTR 911 611 779 1001 766 567 0 822 763 723

April 262 226 265 369 224 164 0 274 296 382

May 306 195 258 372 281 245 0 257 269 364

June 291 197 262 305 272 237 0 217 261 365

2nd QTR 859 618 785 1046 777 646 0 748 826 1111

July 282 295 307 359 323 194 0 286 291

August 350 240 340 332 361 198 0 272 307

September 291 246 325 300 290 197 113 246 262

3rd QTR 923 781 972 991 974 589 113 804 860

October 373 318 374 308 264 192 303 324 326

November 333 238 356 299 232 138 305 335 294

December 271 234 321 247 172 73 296 284 289

4th QTR 977 790 1051 854 668 403 904 943 909

Total Pax 3670 2800 3587 3892 3185 2205 1017 3317 3358

Local Air Service Development Efforts and Results, 2004 to July 2011

The St. Lawrence Valley Air Task Force was founded in August of 2004 to “establish affordable, 

convenient and sustainable air service in Massena to serve the St. Lawrence County, Franklin 

County, Akwesasne, and Canadian markets.” The Air Task Force was formed by a Steering 

Committee whose members included the Town of Massena, the Business Development 

Corporation for a Greater Massena (BDC), the Greater Massena Chamber of Commerce, the St. 

Lawrence County Board of Legislators, St. Lawrence County Chamber of Commerce – Economic 

Development Committee, St. Lawrence County IDA, the Merwin Rural Services Institute of 

SUNY Potsdam, the St. Regis Mohawk Tribe, and community member air service advocates.

The BDC and County Chamber agreed to co-chair the Task Force, with the BDC providing 

staffing services. Eventually, the Air Task Force grew to 20 individuals, with representatives 

from St. Lawrence University, SUNY Canton, the Canton Office of Economic Development, the 

Town and Village of Malone, and an area labor union representative and travel agent joining 

during the time period the Task Force facilitated airport development efforts for Massena. 
Page 9 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

In addition to facilitating the transition in EAS service providers from MESA to Cape Air, and 

managing the crisis caused by the shut down of Big Sky Airlines, the Air Task Force completed

the following air service development efforts between August 2004 and September 2009:

 Retained a technical consultant to issue an RFP for air service development efforts, evaluate 

responses to the RFP, and recommend the best professional firm for the community.

 Contracted with Innova Aviation to conduct a market survey, make the case for 

concentrating air travel in Massena, and write and administer a U.S. DOT Small Community 

Air Service Development Program grant to advance airport development efforts.

 Secured and implemented the $400,000 SCASDP grant to pursue sustainable, nonsubsidized air service for the Massena International Airport, to conduct outreach with 

carriers on behalf of the community, and to initiate a marketing effort for the airport.

 Contributed $150,000 in cash investment and $250,000 in in-kind services to advance the 

goals of the grant.

 Established the relationships that led to the creation of the North Country Airport Alliance, 

a group of EAS-served airports working together on shared airport concerns.

 Orchestrated a “sales pitch” luncheon event with the President of Big Sky, while customer 

services were being addressed behind the scenes, to encourage the airline to move beyond 

EAS service; participants included Alcoa, the New York Power Authority, all four colleges 

and universities, Massena Memorial Hospital, and Cornwall economic development and 

tourism officials This was a good dress rehearsal for additional market presentations to be 

made in the future with more solid candidates.

 Educated major travel users, such as the colleges and universities, on the benefits of 

concentrating their air travel at the Massena International Airport, in order to increase its 

enplanement numbers to a level that will facilitate transition out of the EAS system

 Developed working relationships with Canadian and Mohawk economic development, 

tourism and chamber representatives, as part of international economic development 

partnership discussions; these relationships have generated regional interest and support 

for using Massena’s airport as an economic development tool to advance the border region.

 Developed professional promotional materials and launched a major, introductory 

advertising/marketing effort for the Massena International Airport in Canada, Northern 

New York communities, Akwesasne, and with major travel users such as the colleges. 

Efforts included the development of a new airport logo, website, rack cards, banners, 

events for Canadian travel professionals, media campaigns, and promotion of the Massena 

International Airport at consumer and business shows.

 Facilitated the introduction of Cape Air to the region, helping it to establish its brand and 

relationships with representatives of key market segments and community leaders.
Page 10 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

In the post-Task Force years (2010 to date), the Town Supervisor, Airport Committee, and the 

Business Development Corporation for a Greater Massena have taken up the banner for the 

development of the Massena International Airport and enhancing the air service it offers. The 

Town funded a 2010 SCASDP application to continue the marketing efforts that were just 

getting underway when the 2005 grant fund concluded; this application was not funded, but 

the outreach to grant partners in 2010, and marketing strategies developed at that time have 

been expanded upon and incorporated into this 2011 application. The Town also facilitated an 

airport business planning process, which identified key strategies to help improve the 

profitability of the airport through continued marketing efforts of the airport and its existing 

services, attracting business/corporate owners to grow general aviation revenues, increasing 

enplanements to document the need for a runway extension, and developing hangar space and 

economic development projects at the airport and in aligned areas.

The Mayor of Cornwall, the Mayor of Massena and the Town Supervisor for Massena have also 

joined forces to support the development of runway extensions at the Massena and Cornwall 

airports, which will provide additional air passenger options in Massena, and improved air 

freight service in Cornwall, mutually benefitting both communities.

The St. Lawrence County Legislature’s Economic Enhancement Committee is supportive of the

development of the Massena’s airport as a key economic driver, and the County’s endorsement 

of Massena airport development initiatives is on track for review by the full legislature.

Air Service Development at Massena International Airport

Key Achievements, 2004 to July 2011

 Secured flights to Albany, a top destination for local air travelers.

 Gained a foothold in the Canadian market.

 Increased awareness among community leaders and major travel users of how to work 

with the air service industry.

 Developed a cooperative, rather than confrontational, relationship with EAS carriers.

 Restored public confidence after eight months without any service.

 Secured the highest level of enplanements among all EAS airports in the region.

 With the arrival of Cape Air, enplanements increased by 10% in 2009 and by 43% from July 

2010 to July 2011.

 An Airport Business Plan has been developed which lays out a clear strategy for the future 

development of the airport to transition it to a profitable driver for economic growth.

 Advocacy efforts within the County and the Massena/Cornwall border region are garnering 

consensus and support for the further development of Massena’s Airport facilities.
Page 11 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Description of Local Air Service Needs/Deficiencies

About Massena, New York 

The Town of Massena, New York is located in St. Lawrence County on the New York/Ontario, 

Canada border, in the heart of the state’s sprawling, rural and geographically isolated “North 

Country”. 

Sandwiched between the Adirondack Park to the south and the St. Lawrence River to the North, 

Massena is located in the center of a six-county area that is one of the few regions of the U.S. 

without a four-lane highway. There is also no major airport; instead, Massena operates one of 

five small airports situated throughout the region which operate under EAS subsidies.

Economic growth has been strongest at the edges of the region, which are home to the only 

communities that have been able to grow to the size of cities – Watertown to the west, and 

Plattsburgh to the east. In between, Massena is one of over 200 towns and villages which have 

small, “no growth” economies supported by agriculture, higher education, health care, or 

government services. Economic sectors that are beginning to grow include gaming activities at 

the adjacent St. Regis Mohawk Akwesasne reservation, where a casino expansion is underway, 

and outdoor recreation/heritage tourism, as the region learns how to capitalize on its rivers and 

lakes, undeveloped land, and colonial history.

A variety of resource-based industries, such as mining and forestry, as well as manufacturing 

and retail services, are also scattered throughout the region. Massena, which is home to the 

region’s only shopping mall and the oldest Alcoa facility in North America, has built its economy 

on being an industrial and retail center. Unfortunately, these economic sectors are both in 

serious decline, and this has begun to take a toll on the community and region.

EMPLOYMENT STATUS

In labor force 57.9%

Not in labor force 42.1%

OCCUPATION

Management/professional 25.5%

Service occupations 22.2%

Sales and office occupations 24.8%

Manufacturing 17.4%

Retail trade 16.65%

Educ./health/social services 24.7%

Government workers 17.3%

INCOME

Median household income $31,391

Median family income $38,696

Per capita income $18,111

Massena NY 2000 Census Data
Page 12 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Needs and Opportunities to be met by Marketing Massena’s EAS Service

Insufficient transportation infrastructure is a major contributor to the region’s lack of progress, 

as documented in two different transportation studies – a March 2002 North Country 

Transportation Study implemented by the Development Authority of the North Country with 

$1.5 M in funding secured by former Congressman John McHugh, and a 2008 Northern Tier 

Expressway Study prepared by Wilbur Smith Associates for the NYS DOT and the Federal 

Highway Administration. Findings in these studies related to air service concluded, among 

other things, that consolidating service at one or more regional airport(s) would lead to 

improved service and increased benefits for the region, and that poor transportation negatively 

impacts potential student enrollment in the region’s colleges and universities, and is a major 

detriment to student recruitment.

A lack of transportation infrastructure, however, does not translate into a lack of travel needs 

and opportunities. The main drivers in these areas include:

Current air service travel needs

 With a border location on a major waterway, Massena is a strategic operations center for 

state and federal power and security agencies that employ large numbers of workers who 

must maintain relationships with offices in other parts of the state and nation. 

 The multi-national Alcoa Corporation has operated a manufacturing facility in Massena for 

over 100 years; a recently signed contract assures the plant’s operation for the foreseeable 

future. The largest employer in the area, Alcoa provides a consistent base of air travelers.

 Additional major employers in the Massena area include four colleges and universities 

located in the nearby communities of Canton and Potsdam; their financial stability depends 

upon being able to attract students from outside the region to reach their enrollment goals.

 A northern climate and an aging population create a substantial “snowbird” traveling public 

in winter months when travel by automobile to larger cities for flights south is difficult and 

dangerous. 

Key air service opportunities

Professional consultant efforts, funded by the 2005 SCASDP grant, confirmed that the Massena 

International Airport’s location, and its capacity for expansion, made it the best candidate in 

Northern New York to attract and sustain non-subsidized service in the future. While intrigued 

by Massena’s potential, carriers were interested in seeing increased growth in EAS-funded 

travel before they would consider bringing sustainable service to the community. 
Page 13 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Massena International Airport Catchment Area

The St. Regis Mohawk Akwesasne community, which straddles the border and is adjacent to 

Massena, has made a substantial investment in its casino/gaming operations, both of which are 

increasing visitors to the region. Like the colleges and universities in the region, the Mohawks 

currently base their promotional strategies on a driving market, but all have an interest in 

expanding their markets if air service continues to improve in Massena.

Massena is located directly across the St. Lawrence River from the Canadian city of Cornwall, 

Ontario, with each community anchoring one end of an international bridge. 

Cornwall’s airport is smaller than Massena’s and has no commercial service. The population of 

Cornwall and its immediate surrounding area is 65,000, and 80,000 including outlying regions. 

While Cornwall-area Canadians patronize Massena’s restaurants, entertainment and shopping 

venues, they travel to Syracuse, Plattsburgh or Burlington for affordable U.S. flights, particularly 

to points south. 

A 2008-09 Retention and Expansion Study by the Cornwall Economic Development Department 

revealed that 71% of respondents from the city’s manufacturing sector travel out of the region 

on business; 41% utilized air for some of these travel needs, with the majority using Montreal 

or Ottawa as departure points. U.S. travel destinations accounted for 40% of travel needs, with 

east coast destinations accounting for 20% of that total. Increasing the number of Canadians 

using Massena’s EAS service to reach U.S. destinations is a key part of this funding request; they 

are willing to cross the border to access U.S. services, and are our airport’s largest untapped 

market.
Page 14 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

The work done by the St. Lawrence Valley Air Task Force, with guidance from the Innova 

Aviation and InterVISTAS air service industry consultants funded by our 2005 U.S. DOT SCASDP 

grant award, identified six major needs/deficiencies which would benefit from increased EAS 

enplanement numbers:

1. Massena’s airport needs a runway extension to attract jet service; greater enplanement 

numbers will help to attract a jet carrier and to justify federal investment to lengthen 

the runway.

2. In the 2005 grant period, Massena was currently serving less than 10% of the 

enplanements in its total extended catchment area. While the catchment area is large 

enough to maintain a sustainable air service market, non-EAS carriers want to see higher 

enplanement figures before they will invest in the community.

3. The existing nine-seat plane service is seen as adequate, but not ideal, especially by 

passengers not comfortable with flying in smaller aircraft with a single pilot on board; 

the best way to convince the current EAS provider to bring in larger craft, or to retain a 

carrier offering larger planes, is by filling as many seats as possible. 

4. Improved air service will help large travel users, such as our universities to overcome 

transportation barriers that increase costs or create recruitment disadvantages, and 

major drivers for economic development, like the Mohawk gaming operations that are 

now dependent on a “driving” market, to increase their impact on the local and regional 

economy; continual contacts and promotional efforts are needed to encourage major 

travel users to concentrate their air traffic at the Massena International Airport so that a 

sustainable service level can be reached.

5. While Massena’s “hassle free” airport experience and lower fares are attractive to 

Canadian travelers, they need to be sold on supporting the existing EAS service as a first 

step to attracting larger planes/direct flights to vacation destinations or a major hub. 

6. Massena will need to secure the support and cooperation of Canadian and Mohawk 

leaders in order to achieve its goal of sustainable service. Based on our experience with 

the major travel users on the U.S. side, positioning air service in Massena as a regional 

economic development tool, and incorporating support for the EAS service into regional 

economic development strategies, is the best way to achieve this.

A 2010 Airport Business Plan prepared for NYS DOT by R.A. Weidemann & Associates 

documented that the Massena International Airport has historically been operated as 

transportation service to local residents (in the same category as roads), rather than as a 

business operation. As a result the Airport has operated at a deficit for years, with the level of 

expenses exceeding income currently averaging 33.51%. 
Page 15 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

With the closure of our GM plant, an assessment reduction in the millions for the shopping mall 

based in Massena, and one of the highest unemployment rates in New York State, the Town 

recognizes that it cannot continue to subsidize the operation of the Massena International 

Airport in the long-term. The Airport Business Plan identifies four key strategies/opportunities 

that will, over time, enable the airport to move from a deficit operation to a profitable driver of 

economic growth:

 Enhanced Marketing, to boost awareness and usage of existing services.

 Attracting Business/Corporate Operators to grow general aviation revenues.

 Increasing passenger numbers from the region, including Canada, to document the need for 

a runway extension that would support the transition from EAS to commercial service.

 Hanger Development and aligned business development on the airport 

grounds/surrounding commercial areas to diversify and increase revenue sources.

To help develop marketing and promotion messages for specific markets, and to measure the 

results and effectiveness of the campaign, there is also a significant need for research and data 

collection. Specific information needs include:

 Gathering of data on passengers flying on Cape Air at Massena, including zip code origin and 

final destination (Albany or Boston); this information will be provided by Cape Air and there 

is the possibility of obtaining other demographic data as well.

 More detailed data and analysis of the air service needs, interests, destinations, and airport 

choices of those in the Massena catchment area, particularly those in four target markets: 

 Massena-area residents dependent upon the EAS system to access the national air 

transportation system.

 Large travel users, particularly our four university centers.

 Drivers of economic growth that can increase employment/market share through 

improved air service, such as the Akwesasne Mohawk gaming operations, and 

opportunities identified through the region’s economic development offices.

 Canadian and Mohawk travelers who represent the additional enplanement numbers 

needed for Massena to develop its airport and introduce air service options that will 

advance the community/region as a whole.

 Cost comparisons between Massena and other airports, to document the financial 

advantages when travelers “Fly Massena”.

 How best to market the existing EAS service to passengers within the catchment area, as 

measured by data development and analysis.
Page 16 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

The Strategic Plan we have developed to address these needs, opportunities and deficiencies is 

based upon reaching or surpassing a level of 5,000 annual enplanements in 2012 and reaching 

7,500 enplanements by 2014. 

These enplanement goal targets are based on the following:

 MESA achieved 3,892 enplanements on a 19-seater aircraft in 2005, the year in which US

Airways substantially de-hubbed Pittsburgh, transferring many of its flights to Philadelphia 

International Airport.

 Traffic in the following years at Massena declined to 3,185 enplanements in 2006, then to 

2,205 in 2007, and was discontinued altogether with the demise of Big Sky Airlines in 

January of 2008 (after having only commenced service in the second quarter of 2007).

 Since beginning service in September of 2008, Cape Air achieved enplanements of 1,017 in

its first five start-up months, and in its first full calendar year of operation, 2009, brought 

enplanements back up to 3,317. As of the 2nd quarter, 2011, Cape Air’s enplanements have 

exceeded the total number of enplanements MESA reached in calendar 2005.

 Cape Air officials state that growth from July 2010-July 2011 was 43%, putting the airport on 

track to achieve enplanement levels of 5,000 this year. This is a figure Cape Air expects to 

sustain in 2012, and increase to 7,500 or more by 2014, especially with a stronger marketing 

push in place that includes a focus both on Albany and the new Boston service. In addition, 

Cape Air is working on behalf of Massena to have MSS added to the JetBlue website, which 

would effectively make Massena a JetBlue city, providing a highly attractive advantage to 

feature in new promotions.

Strategic Plan for Increasing EAS Enplanements

Background:

Unanticipated difficulties experienced during our 2005 SCASDP grant reduced the amount of 

time and money allocated for marketing; we did not get beyond introducing the Massena 

International Airport to Canadian travelers and periodic promotions to major U.S. travel users. 

Promotion was seriously deterred by the customer service problems and eventual closure of Big 

Sky Airlines, the time lag before a replacement carrier began service, and the temporary closure 

of the Seaway International Bridge. 
Page 17 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

“Fly Massena”

This application requests funds for a multi-year “Fly Massena” marketing effort which will build 

on the activities most successful in the past, introduce marketing elements outside the scope of 

our 2005 grant (such as creative college/community events) and undertake the market 

research/data collection efforts necessary to design and document our market and the best 

strategies to reach it. The campaign will emphasize the added convenience now offered to 

travelers with Boston serving as the primary travel destination, plus the promotion of Massena 

as a Jet Blue community as this opportunity is developed by Cape Air.

Project/Goal:

 Massena will implement a three-year “Fly Massena” Campaign to meet or exceed 5,000 

enplanements in 2012, and to reach 7,500 or more EAS enplanements by 2014.

Target Markets:

 The rural population of Massena-area residents that the EAS program serves.

 Four key, large air travel-users – our four university centers.

 Business interests that are key drivers of economic growth, such as the Akwesasne Mohawk 

gaming operations and others identified by economic developers in the region.

 The broader region of Canadian and Mohawk travelers who represent the additional 

enplanement numbers needed for Massena to develop and grow its airport.
Page 18 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Project Components:

Region-wide Marketing

 Develop a “Fly Massena” marketing campaign using traditional media (radio, TV, print, 

billboards, mailings, etc.)

 Upgrade airport website and implement a supplemental viral marketing campaign

(broadcast emails, Facebook, Twitter, YouTube, etc.)

Targeted Promotions to Key Market Segments

Implement “Fly Massena” events/promotions in four target markets:

1. Massena and Surrounding Communities

2. Colleges and Universities

3. Business Interests

4. The Broader Region of Canadian and Mohawk Air Travelers 

Promotions will include media campaigns and strategies developed with our two Canadian 

grant partners (the City of Cornwall and the Cornwall Chamber) plus the St. Regis Mohawk 

Tribe. Ideas include a Massena/Cornwall/Tribe event to show how boosting EAS numbers 

at Massena is good for all three communities. The American Chamber of Commerce in 

Canada (Amcham) is a grant partner; their support will include digital promotion (through 

its national website/email broadcasts) and partner recognition at regional events.

Region-wide marketing strategies will include both traditional and new media campaigns 

(see above). A key campaign feature will be a 30-day grassroots “Fly Massena” social 

media campaign, focused on raising awareness for the flights offered at the Massena 

International Airport, with a chance to win Boston area/Jet Blue destinations vacation 

packages offered as an incentive to participate.

We will plan strategies with five economic development partners: the Massena, St. 

Lawrence County, and Malone chambers; the St. Lawrence County IDA; and Massena’s 

Business Development Corporation. We will reach out to other economic development 

agencies in the region, and approach the Akwesasne gaming operations about repeating 

and enhancing airport promotions done with them under our 2005 SCASDP grant. 

All four of our colleges/universities – St. Lawrence University, Clarkson University, SUNY 

Potsdam, SUNY Canton – have signed on as grant partners. Creative promotional 

strategies will be developed for each campus; ideas include: promotions at hockey games,

student film competitions, a “Fly Like a Rock Star promotion,” an “Art in the Air” student 

plane exterior design competition, and “Shakes on a Plane” a four-campus competition, 

possibly involving local fast food restaurants/ice cream shops (for every milkshake 

purchased, a portion of the cost would go to local charities.)
Page 19 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Market Research Activities

 Establish a process with Cape Air for tracking and reporting passenger data.

 Gather and monitor data from traditional and electronic/new media campaigns to measure 

the effectiveness of print and online marketing tools.

 Data collection/analysis of air service needs, interests, destinations, and airport choices of 

those in the Massena catchment area that are using airports for their air travel needs.

 Compilation of cost comparisons between Massena and other airports, to document how 

affordable it is for travelers to “Fly Massena.”

Reporting Activities

 Quarterly reports by project coordinator to Airport Marketing Committee

 Annual Review by project coordinator with Massena Town Council

 Final reports from consultants engaged to carry out marketing, research and project 

coordination 

Project Timeline:

Year One

1st quarter Retain Marketing Consultant/develop regional and viral marketing campaigns

2nd quarter Update website/retain Marketing research consultant/develop research process 

3rd quarter Initiate regional marketing campaign

4th quarter Plan college/university promotions

Year Two

1st quarter Initiate college/university promotions

2nd quarter Plan business interest/economic development promotions 

3rd quarter Initiate business interest/economic development promotions 

4th quarter Plan Mohawk/Canadian promotions

Year Three

1st quarter Initiate Mohawk/Canadian promotions

2nd quarter Maintain all activities

3rd quarter Establish mechanisms to sustain best marketing practices beyond grant period

4th quarter Wrap up and final report

Massena International Airport Welcomes You!

Our new Airport Terminal –

where connections to everywhere start!
Page 20 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Public/Private Partnership Involvement

While the Air Task Force concluded its operation with the end of the 2005 DOT grant, the 

relationships forged and doors opened during the grant period provide a strong foundation for 

the marketing objectives in this grant.

Grant Partners

The following organizations and institutions have agreed to serve as Grant Partners for the 

marketing efforts to be funded with this grant:

1. American Chamber of Commerce in Canada

2. Business Development Corporation for a Greater Massena*

3. City of Cornwall, Ontario, Canada

4. Clarkson University

5. Cornwall Chamber of Commerce

6. Greater Massena Chamber of Commerce*

7. Malone Chamber of Commerce

8. St. Lawrence County Chamber of Commerce*

9. St. Lawrence County Industrial Development Agency*

10. Saint Lawrence University*

11. SUNY Canton*

12. SUNY Potsdam

13. Village of Massena*

The St. Regis Mohawk Tribe served on the Air Task Force. They were unable to take action to be 

a grant partner by the grant deadline, but they have indicated their continued interest and 

support and anticipate being involved in Mohawk-focused marketing activities under this grant.

Partnership involvement will consist of:

 Help in planning events/promotions in support of existing EAS service

 Input into general marketing materials/those specific to their interests

 Guidance and assistance with data collection and market research

 Eleven of our 13 Grant Partners have confirmed a willingness to provide

 in-kind support and a base level of investment; the Business Development

 Corporation for a Greater Massena has committed a minimum of $5,000,

 the American Chamber of Commerce in Canada a minimum of $1,000, 

 and nine other partners have committed to a minimum of $250 each.

Cape Air has reviewed this application and is supportive of its 

goals. They have offered to help with promotions by providing award 

tickets and by participating in events and providing added support, and 

will look at ways to link their EAS marketing activities with “Fly 

Massena” promotions. Finally, Cape Air will provide data and 

assistance with our market research efforts.

Seven of our 

grant partners*

served on the

St. Lawrence 

Valley Air Task 

Force from 

2004-2009

*denotes former

Task Force member
Page 21 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Funding Necessary for Project Implementation

The Town of Massena is seeking $300,000 in federal funding from the SCASDP. The Town will 

provide $100,000 in local, cash match support, which will be used to leverage an additional 

$100,000 in in-kind support (at a minimum) to enhance marketing strategies in this application.

Project Budget (Cash):

Regional/new media campaigns/consultant & activities $165,000

Targeted marketing promotions $125,000

Market research/data collection/consultant & activities $50,000

Project coordination/grant administration $60,000

Total $400,000

Funding Sources (Cash):

Federal 2011 SCASDP Funds $300,000

Local Town of Massena $100,000

Total $400,000

The Town’s contribution will be provided from “gaming compact” monies collected and 

administered by New York State, which, by law must be used for community marketing and 

economic development purposes. This is a stable source of funding which the Town intends to 

commit annually to continue the marketing, events and economic development approaches 

undertaken under this grant which prove to be the most successful. 

In addition, we will use the federal and local cash investment to leverage a minimum of $100,000 

in in-kind support to enhance SCASDP-funded marketing activities. We will invite/document inkind support from these sources:

 A minimum of $25,000 in donated advertising space. In our 2005 SCASDP grant, we 

documented $20,000 in additional, bonus advertising above the grant dollars invested.

 A minimum of $50,000 in in-kind support from 13 grant partners. A total of 16% of this 

amount has been pre-committed by 11 of the partners, for a base investment of $8,250. In 

2005, we documented that over $200,000 was contributed in in-kind hours/materials from

members of the St. Lawrence Valley Task Force over four years; it is reasonable to project 

that we will be able to secure and document $50,000 in in-kind support in three years from 

13 partners, particularly with our focus on working on specific events/promotions with each 

partner, and concentrated effort by the project coordinator to document in-kind 

contributions on an ongoing basis throughout the project.

 A minimum of $25,000 in in-kind support from Cape Air. In our 2005 SCASDP grant, Cape 

Air documented contributing $18,182 in in-kind support to airport marketing efforts. For 

this application, Cape Air has discussed using up to one-third of their annual EAS marketing 

budget (approximately $10,000 annually/$30,000 total) toward SCASDP-funded EAS 

marketing efforts for Massena, with the emphasis on directing their marketing dollars for 

promotions focused on U.S. residents.
Page 22 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Monitoring of Local Funding Committed to Project

The Town of Massena’s funding commitment of $100,000 will be divided into three annual 

installments. A line item in the Town’s budget will be set up for the Town’s match. A financial 

statement showing the status of all line items is reviewed at the Town Council’s regular meeting 

each month, and all items are reviewed during annual outside audits. Funds will be expended 

and monitored according to the grant agreement and process used with our 2005 SCASDP grant.

Monitoring of Progress and Critical Milestones

The Town of Massena, as the government entity which owns the Massena International Airport, 

will be the legal sponsor for administering our SCASDP grant project. 

A local project coordinator will be retained to oversee the administration of project funds, 

complete required reporting, and work with the Town Supervisor’s staff to submit 

documentation and reimbursement requests to the DOT. The air service consultant who 

administered Massena’s 2005 SCASDP funding has agreed to provide advisory services.

The project coordinator will facilitate the work of two consultants:

 A marketing consultant who will develop and implement the regional marketing campaign, new 

media promotions, and promotions to the four target market segments.

 A marketing research firm that will be engaged to develop and implement plans to gather, analyze 

and interpret data gathered to help us understand the market for the Massena International Airport 

and the best marketing vehicles to reach them. 

Each consultant will be charged with developing a project budget based on the allocations 

proposed in this application. The consultants will provide monthly reports to the project 

coordinator listing activities and expenses against the approved timeline and budget.

Reporting process:

 The project coordinator will present a quarterly report to the Town’s Airport Committee, including 

progress toward goals and a financial report of expenditures for the period.

 The project coordinator will present an annual review to the Massena Town Council of all grant 

activities and a financial report of all project expenditures against the project budget.

 All consultants engaged for this project will present final written reports and recommendations to 

the Town Airport Committee and Town Council. 

 Enplanement numbers will be monitored on a monthly basis to assure that the goals of achieving 

5,000 enplanements in the first year, increasing to the 7,500 level by the end of the grant period, are 

attained. If enplanement figures do not show progress toward these goals, or targeted market 

segments do not show responsiveness to marketing activities, the project coordinator and 

marketing consultant will adjust the marketing plan and advise the Town Airport Committee/DOT .
Page 23 of 23 – Town of Massena SCASDP – Submitted July 30, 2011

Continuation of Efforts beyond the Grant Period

Massena’s Airport Business Plan recommends continued investment in airport marketing to 

increase enplanements as a part of an overall airport development strategy.

The Town has identified its gaming compact revenues as a stable source of funding for this 

purpose. 

This grant will develop the knowledge, relationships and tools needed to properly invest these 

dollars for successful, ongoing marketing efforts, by: 

 Establishing a base of 7,500 annual enplanements to build upon for further growth.

 Gathering and analyzing marketing data to provide a basis for attracting and investing local 

marketing dollars beyond the grant period.

 Validating the most effective and successful marketing vehicles to pursue moving forward.

 Rebuilding the relationships that are key to reaching higher enplanement levels and the 

airport’s development overall.

With direction, funding, and tools in place, the final task under the grant will be to establish a 

mechanism that will harness and direct the collective power of all of these elements, such as 

revitalizing the Air Task Force. We have made an initial outreach to regional leader, who is 

interested in serving as the Chairperson of a new Air Task Force, based upon the momentum we 

can create for this under this grant.

In conclusion, the Town of Massena is also examining the relationship between air service, 

airport infrastructure/development and airport management, based on the recommendations in 

the Airport Business Plan. The Town is now focused on how it can successfully coordinate, fund

and manage efforts in all these areas, in order to transition the Massena International Airport 

from a subsidized community service to a revenue generator and driver for economic growth. 

The solid marketing program that will result from this grant funding will not only provide a basis 

for helping the Massena International Airport to continue to attract high levels of enplanements, 

but contribute to the success of the airport across the board, and support the advancement of 

the economically challenged Massena/Northern New York region as a whole.