1

APPLICATION UNDER 

SMALL COMMUNITY AIR SERVICE DEVELOPMENT PROGRAM

DOCKET DOT-OST-2013-0120

SUMMARY INFORMATION

All applicants must submit this Summary Information schedule, as the application 

coversheet, a completed standard form SF424 and the full application proposal on 

www.grants.gov.

For your preparation convenience, this Summary Information schedule is located at 

http://www.dot.gov/policy/aviation-policy/small-community-rural-air-service/SCASDP

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

NUMBERING SYSTEM (DUNS) NUMBER, INCLUDING +4, EMPLOYEE IDENTIFICATION NUMBER 

(EIN) OR TAX ID.

Legal Sponsor Name: 

City of West Wendover

DUNS Number: 197602675

EIN/Tax ID: 88-0272071

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

1._CITY OF WEST WENDOVER, NEVADA (AND TOOELE COUNTY, UTAH)_____________

2._CITY OF ELKO, NEVADA___________________________________________________

3._ ___________________________________________________

4.____________________________________________________

C. PROVIDE THE FULL AIRPORT NAME AND 3-LETTER IATA AIRPORT CODE FOR THE 

APPLICANT(S) AIRPORT(S) (ONLY PROVIDE CODES FOR THE AIRPORT(S) THAT ARE ACTUALLY 

SEEKING SERVICE).

1. Wendover Airport (ENV) 2.

3. Elko Regional (EKO) 4.
2

D. LIST THE 2-DIGIT CONGRESSIONAL DISTRICT CODE APPLICABLE TO THE SPONSORING 

ORGANIZATION, AND IF A CONSORTIUM, TO EACH PARTICIPATING COMMUNITY.

1. 2nd 2.

3. 4.

E. APPLICANT INFORMATION: (CHECK ALL THAT APPLY)

Not a Consortium √ Interstate Consortium Intrastate Consortium

Community now receives subsidized Essential Air Service

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

Service Development Program Grant

If previous recipient: Year of grant(s): 2009

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

PUBLIC PRIVATE

1. City of West Wendover, Nevada 1. Wendover Resorts Consortium

2. City of Elko, Nevada 2. West Wendover 1% Tourism Committee

3. Tooele County, Utah 3. Elko Chamber of Commerce

4. 4. Northeast Nevada Reg. Dev. Authority

5. 5. Nevada Commission on Eco. Development

G. PROJECT PROPOSAL: (CHECK ALL THAT APPLY)

√ Marketing Upgrade Aircraft √ New Route

Travel Bank √ Service Restoration √ Subsidy

Surface Transportation √ Regional Service √ Revenue Guarantee

√ Launch New Carrier √ Start-up Cost Offset First Service

Study √ Secure Additional Service Other (explain below)

H. EXISTING LANDING AIDS AT LOCAL AIRPORT:

 Full ILS Outer/Middle Marker √ Published Instrument Approach

Localizer √ Other (specify) RNAV
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I. PROJECT COST: DO NOT ENTER TEXT IN SHADED AREA

LINE DESCRIPTION SUB TOTAL TOTAL AMOUNT

1 Federal amount requested $950,000

2 State cash financial contribution $0

Local cash financial contribution

3a Airport cash funds $0

3b Non-airport cash funds $180,000

3 Total local cash funds (3a + 3b) $180,000

4 TOTAL CASH FUNDING (1+2+3) $180,000

In-Kind contribution

5a Airport In-Kind contribution** $275,000

5b Other In-Kind contribution** $120,000

5 TOTAL IN-KIND CONTRIBUTION 

(5a + 5b)

$395,000

6 TOTAL PROJECT COST (4+5) $1,525,000

J. IN-KIND CONTRIBUTIONS**

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

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

EKO: Landing $27,000, Ramp: $12,000

ENV: Landing $13,000

RNO: Landing $30,000, Terminal: $156,000, Ramp: $37,000 (Year One)
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K. IS THIS APPLICATION SUBJECT TO REVIEW BY STATE UNDER EXECUTIVE ORDER 12372

PROCESS?

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

Process for review on (date) _____________.

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

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

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

EXPLANATION)

√ No Yes (explain) 

______________________________________________________________________________

______________________________________________________________________________
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Application Narrative

West Wendover/Elko, Nevada Consortium

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 

(P.L. 106- 181), 

As Reauthorized by the Vision 100-Century of Aviation Reauthorization Act

(P.L. 108-176)

Pursuant to Order 2013-6-14

As Authorized by 49 U.S.C. § 4173

Proposal Sponsor: City of West Wendover

AOR: Mr. Chris J. Melville

City Manager

1111 North Gene L. Jones Way

West Wendover, Nevada 89883

Docket: DOT-OST-2013-0120

Date: July 26, 2013
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TABLE OF CONTENTS

Subject Page

Executive Summary 1

Introduction 3

Consortium Communities 4

Consortium Airports 5

Factors That Have Affected Air Service 6

ENV Market Research 6

Catchment Area and Community Profiles 7

Market Analysis 9

Potential Passengers 9

Potential Air Service 10

Proposed Fares and Passenger and Revenue Forecast 11

Calculation of Subsidy Required for Operation 12

Action Plan for the Consortium 13

Public-Private Partnership 13

Project Goals 13

Action Plan Elements 13

Marketing Program 13

Target Audience 14

Marketing and Media Selection 14

Total Incentive Package 14

Sponsor Participation 15

Performance Measurement 15

Finalization of Recruitment of Air Service 15

Marketing and Media Plan 15

Air Service Performance 15

Community Support 16

Appendix A - Letters of Support 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

1

EXECUTIVE SUMMARY

Our application seeks funding for reinstated service for the Elko, Nevada community via Elko 

Regional Airport (EKO) and new service to West Wendover, Nevada/Tooele County, Utah 

communities via Wendover Airport (ENV), both to Reno International Airport (RNO). This is 

envisioned as a single route RNO-EKO-ENV. 

The Order says our application should help our 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 expired, and our application does this. 

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

secondary criteria directly from the 2013 Order to preview our comprehensive, competitive 

response. First to your primary selection criteria: 

1. Higher air fares than the national average.

ENV has no scheduled service. ENV currently accommodates unscheduled gaming 

charters via Allegiant Airlines. Scheduled or unscheduled air carrier service to RNO is not 

available for either consortium community. Scheduled or unscheduled air carrier service to 

SLC is available only via EKO. This total cost is above average for the distance.

2. Local revenue cost sharing from other than airport revenues.

The consortium has committed to $180,000 in local non-airport cash, plus $120,000 in 

community in-kind for marketing and plan execution, plus $275,000 in airport in-kind in the 

form of waived fees for this application. The cash and community in-kind revenues are 

committed from area community businesses.

3. Public-private partnership.

The cities of West Wendover, Nevada, and Elko, Nevada, along with Tooele County, Utah

and the business communities within the region are the Consortium. The Consortium is the 

public-private partnership for purposes of this application. Substantial discussion and 

strategic planning has been underway for some time. In fact, the Consortium has been in 

existence since the execution of the 2009 SCASD grant and we have been synthesizing our 

market strategy since that time, culminating in this application. Mr. Chris Melville has been 

leading the charge and is the AOR for purposes herein.

4. Benefits broad segment of the traveling public.

Consortium airports are an important part of the ability of our business communities to 

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

system. Consortium leadership believes that that DOT selection of this application will work 

to fill an unmet demand and create new opportunities in scope and role of scheduled air 

service in the region across the various consortium community industries. 

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

Initiation of the service would begin as soon as the service is funded with the SCASDP 

grant and coordinated with the airline. A two-year time period is envisioned to allow a 

meaningful market to develop. The AOR commits and grant assurance stipulates that the 

timely execution of the appropriate funds will be made.

6. Multiple communities.

As has been described, this application meets the spirit and intent of this priority criteria, 

with regional, intrastate consortium community participation. Importantly, RNO is the larger 

airport involved with meaningful connections and timely banks to the nation’s airports.
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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Now to your secondary selection criteria and additional guidance specified in Section C: 

1. Innovation.

While a regional, intrastate consortium is not necessarily innovative for SCASD 

purposes, several other important factors combine that when taken as a whole, suggest 

that this application is responsive. These factors include geographic distance, restoration 

of service while filing an unmet demand at both consortium comminutes, and a positive 

impact on travel and tourism, including the resort/gaming industry. We note that previous 

SCASD grants involving gaming, tourism and travel have fared well. 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.

2. Participation.

The consortium has invested a substantial amount of time and resources to define the 

market and make a responsive plan for market penetration. Mr. Melville, the AOR has spent 

the better part of four years crafting, guiding and garnering support within consortium 

communities and businesses for meaningful participation. 

3. Location.

Consortium communities are (1) relatively isolated, fully meeting the intent of ‘geographic 

isolation, for application purposes; (2) have relatively expensive or non-existent scheduled 

commercial air service; (3) fit the intent and meaning of ‘small community’ for application 

purposes; and, (4) have spent a good amount of time and effort via the 2009 SCASD grant

and other follow-on planning to craft a responsive application.

4. Other factors.

As you will read, this narrative demonstrates resolution of unmet consortium community air 

service needs, namely scheduled service restoration for EKO to RNO, and access to a

national airport for ENV. Existing consortium community air service volumes are defined in 

this narrative. Contingency and longevity planning are defined in this narrative. This 

application’s grant request $950,000 (62% of total) combined with cash $180,000 (12% of 

total) and in-kind dollars $395,000 (26%) could be construed to create value for DOT, and 

demonstrate substantial ‘skin-in-the-game’. A letter from our proposed air carrier follows as 

Appendix A. Scheduled air service to RNO is primary to the consortium and contingency 

and longevity planning has been completed to perpetuate. Grant funds will be distributed 

over all of Northern Nevada and Northwest Utah, functionally the catchment area.

C. Additional guidance

Market analysis and been completed and updated for this application. Analysis 

demonstrates that only a specific number of seats on meaningful times on the proposed 

route will make the service viable and sustainable. Due to the 20-page limit the entirety of 

the analysis is not herein included, but condensed for application purposes. The 

Consortium, through the AOR and community in-kind funds, proposes to retain a marketing 

consultant firm to execute the marketing plan; and, perhaps more importantly ‘tweak’ the 

plan as market conditions will seemingly inevitably dictate over the proposed two-year 

period. No subsidy is proposed herein for an existing city-pair. This narrative specifies 

relatively large cash and in-kind contributions for ‘skin-in-the-game’, and the consortium will 

expend dollars per the grant assurances. 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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INTRODUCTION

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

years, been preparing ENV to be a scheduled commercial service airport. Joining the 

Wendover community in the public-private partnership is the Elko community. 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 restoration of scheduled commercial service to key 

hubs will help to continue the development of the area businesses 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 city-pairs. Airlines are seeking route profitability, good facilities, community 

support, available resources for long-term improvements, and limited competition. Initial 

or short-term incentives such as reduced fees, free rents, and promotional funds will be 

necessary to attract new air service.

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

2013 Small Community Air Service Development Program

Application Narrative 

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

expenditures at hotels, restaurants, car rentals, and local shops. Consortium airports 

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

passenger facility charges in the long-term. The new airline will purchase fuel, supplies, 

and crew meals. All of these expenditures will translate into new jobs.

The upcoming passenger forecast indicates that there is sufficient demand to support 

daily flights to RNO, via EKO. Utilizing fares comparable to the average fares at SLC, 

flights to these airports using the scheme presented herein, are projected to be 

profitable with 19-seat aircraft only. This functionally limited the number and type of 

potential suitor carriers. 

Note that much of the discussion in this narrative focuses on ENV. This is because the 

City of West Wendover was a 2009 SCASD grant recipient and the analysis performed 

pursuant to that funding focused on Wendover needs. Synthesis and study conducted

as part of the 2009 grant identified EKO as a viable and mutually-beneficial partner to 

RNO. The addition of RNO is what makes the model and the dollars work, effectively 

serving two eligible communities and connecting them to a reasonably-hubbed RNO 

airport, meeting the spirit/intent of SCASD authorizing legislation and the 2013 order.

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 generally poorer service on the airlines. A reduction in capacity to 

many markets has occurred as capacity is somewhat managed for pricing power. To 

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

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

Several carriers have exited, while consolidation has served to maximize pricing power 

as industry consolidation was expected for some time. 

The number and type of viable, responsive carriers to perform SCASD supported 

service has been somewhat lessened in this environment. Upstart and smaller entrants 

have surfaced, yet FAA’s new 1500-hour rule has often diminished the availability of 

those carriers.

Consortium Communities

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 

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, wider ranging view of 

scheduled service possibilities. 

The City of West Wendover, Nevada and the City of Wendover, Utah 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. 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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Resorts at Wendover began providing a flight charter program from over 60 cities to 

Wendover Airport utilizing Xtra Airways in 2005. Allegiant Airlines took over this service 

in February 2011 with MD-83 equipment. This program generates over 58,000 

passengers per year (2011 ACAIS Report).

This 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 ENV market. 

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

and a determination of feasibility and profitability was developed. Various airlines were 

listed as potential air carriers for Wendover Airport. The consortium was formed and 

continues today, as part of this study process. 

Both ENV and EKO have a strong history of casino charter activity with the former 

Casino Express at EKO, and Great American Airways, Xtra Airways and Allegiant

Airlines service at ENV dating back to 1993.

EKO and its sponsor, the City of Elko support leisure, gaming and business activity. 

EKO is a certificated, scheduled commercial service facility with SkyWest (OO) service 

to SLC with EMB-120 equipment. The most important air service concern within the City 

of Elko and consortium leadership is the lack of service to RNO. OO served the EKORNO city pair from 2002-2005, and reinitiating is a high priority for the EKO portion of 

the consortium. At the time (2005) approximately 27,000 annual enplanements were 

attributed to this city pair, 35 percent of EKO total annual enplanements and all of its 

scheduled enplanements. OO noted that business losses were the reason for 

discontinued service on the city pair. Enplanements fell from 75,000± to 35,000± as a 

consequence. This figure was halved again two years later. Analysis completed for this 

application suggests that a potential reason for the OO decision was excess capacity 

(30 seats) each way. This application proposes to resolve at least this one issue with 

less initial capacity (19 seat) until and unless a mature market is once again created.

At one time, the State of Nevada shepherded approximately $500,000 worth of funds 

for air service development, but the funds became unavailable due to several financial 

constraints with the 2008 recession an inability to use the funds. Financial conditions 

have improved and are expected to continue to improve, suggesting that funds 

availability may become viable within the next two years. 

Consortium Airports

ENV 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 resort/gaming 

visitors. ENV is a certificated facility and 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 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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and repair. Wendover Airport abuts Interstate 80, giving it easy access to all 

communities in the catchment area. 

ENV has an 8,000 foot by 150 foot runway with 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 newer 10,000 square foot 

terminal building with three airline ticketing 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. More than adequate customer parking is adjacent to 

the terminal. ENV provides easy access to all of West Wendover, casinos, hotels,

attractions, and Interstate 80. 

These are the necessary aviation infrastructure items to safely accommodate 

scheduled air carrier operations. 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. 

EKO is sponsored, owned and operated by the City of Elko, Nevada The Airport's 

budget is approved by the City, and annual surplus/deficient is made up solely by it. 

Like West Wendover, Elko is also a destination for the gaming visitor. EKO is a 

certificated facility with TSA operations. EKO presently accommodates scheduled and 

unscheduled operations, small cargo, air taxi operations, general aviation, aircraft 

storage, and aircraft maintenance and repair. The Elko community also abuts Interstate 

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

EKO has a 7,214 foot by 150 foot runway with instrument approaches. It handles 

regional jets and standard twin jet aircraft. EKO has larger, newer terminal building with 

four airline ticketing positions, ramp space for two B-737 or three regional jet/turboprop

aircraft, and large passenger hold room, space for rental car counters, and a common 

baggage claim area. Customer parking is adjacent to the terminal.

Factors That Have Affected Air Service 

Both consortium communities are destinations with resort/casinos, general business 

ties, 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 and continue to expand 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. 

ENV 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:
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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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. 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.

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

reliability, good schedule, and affordable flights. 

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. 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 prepurchase ticket program. 

Catchment Area and Community Profiles

Consortium communities are convenient for the residents of northwestern Utah, 

northeastern Nevada and the gaming visitor. The ENV 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 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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$14,465, respectively. The median age is 23.85 years and the average household size 

is 3.52 persons. 

ENV Catchment Area 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

EKO Catchment Area Population

Elko, NV 16,708

Spring Creek, NV 10,584

Carlin, NV 2,083

Sub Total 29,339

Catchment Area Grand Total 37,664

Wendover share of the 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
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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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 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 includes all of Elko County and the western part of 

Tooele County, Even though the area is large, population is sparse in comparison to 

other markets. 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.

Similarly, the Elko market supports gaming, but also the medical industry and medical 

visits, along with, and perhaps more importantly mining and the natural resources 

extraction industry. Long-time business Newmont, Barrick and other firms regularly 

transit the Elko community. 

Enplaned passenger counts at ENV are greater than or approximate to the enplaned 

passenger counts at Page, Twin Falls, Elko, Cedar City, and Vernal. This is due to the 

strong Allegiant program. Elko Airport had good passenger participation when it had 

nonstop service to Reno and has sub-optimal loads to Salt Lake City today.

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. 

Since there is no historical scheduled airline passenger data for ENV 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. 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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Historic scheduled EKO passengers:

were: Year Airline O&D 

Passengers

Year 2008 2009

1999 SkyWest 19,720 EKO-SLC 8,400 6,940

2000 SkyWest 17,830 EKO-All 

Other

34,010 28,320

2001 SkyWest 16,110 Totals 42,410 35,260

2002 SkyWest 39,970 % 

connecting:

80.2% 80.3%

2003 SkyWest 11,140 To DEN/LAS 4,160/2,120 3,500/1,900

2004 SkyWest 12,260 To PHX/LAX 1,820/900 1,970/1,170

2005 Scenic 7,740

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

resulted in a passenger forecast for Wendover of between 7,500 to 18,600 annual 

passengers:

ENV Forecasts:

Based upon Share of Population 7,500

Based upon Passengers Per Capita 12,000

Based upon Per Capita and Inbound Visitors 18,600

Based upon Passenger per Hotel Room 46,000

Erring on the somewhat conservative side, 18,600 passengers per year was used. 

Potential Air Service

Based upon upcoming data, a decision was reached to solicit Public Charters and their 

J31 equipment for the route. Both Public Charters and the consortium agree that there 

will be a ramp-up period of passengers and revenue until the carrier reaches a nominal

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:

City Pair Depart Arrive Frequency

ENV-EKO 0630 0603 ex. Sun

EKO-RNO 0623 0742 ex. Sun

RNO-EKO 0802 0921 ex. Sun

EKO-ENV 0941 1114 ex. Sun

ENV-EKO 1630 1603 ex. Sat

EKO-RNO 1623 1742 ex. Sat

RNO-EKO 1802 1921 ex. Sat

EKO-ENV 1941 2114 ex. Sat
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

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Proposed Fares and Passenger and Revenue Forecast

Because all of the ENV passengers on this new route are expected to be connecting

through EKO, special attention will be required to make sure that the fares are 

competitive and that times are coordinated with RNO banks. 

Planning for this proposal suggests that the route will have a conservative penetration 

rate for the planned daily flights. Fares from ENV will need to be competitive with SLC 

in order to attract passengers and develop the ENV passenger base. The following 

information is generated from the calculation tables on the following page.

It is estimated that the consortium will need a revenue guarantee of $1,159,000± to 

cover operating losses over the 24-month period. 400± passengers are planned for the 

first month’s worth of activity and 800± are planned in the final month.

As can be seen on the following page, it is estimated that Public Charters will achieve a 

40% load factor in the first month and increase to 70% at the end of the first year. This 

assumption is based on experience at other markets in the west which have introduced 

new service to an airport that did not previously or recently have air service. Based on 

these ramp-up assumptions and small increases in fares through the start-up period, it 

is estimated that the airline will achieve 80% market penetration on the route following 

month 21 and reach a near break-even point. 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

12

CALCULATION OF SUBSIDY REQUIRED FOR 24 MONTHS OF OPERATION

Round-Trip Round-Trip Round-Trip Monthly Airport Fee Community Monthly Cumulative

Month Load Average Fare Revenue Costs advertising Waivers InKind Subsidy Subsidy

1 40.00% 349 2,652 6,215 5,000 22,917 5,000 (163,051) (163,051) 2 47.50% 349 3,150 6,215 5,000 22,917 5,000 (137,091) (300,142) 3 50.00% 349 3,316 6,215 5,000 22,917 5,000 (128,437) (428,579) 4 52.50% 359 3,581 6,215 5,000 22,917 5,000 (114,577) (543,156) 5 55.00% 359 3,752 6,215 5,000 22,917 5,000 (105,675) (648,831) 6 55.00% 359 3,752 6,215 5,000 22,917 5,000 (105,675) (754,507) 7 57.50% 369 4,031 6,215 5,000 22,917 5,000 (91,071) (845,578) 8 60.00% 369 4,207 6,215 5,000 22,917 5,000 (81,922) (927,500) 9 65.00% 389 4,804 6,215 5,000 22,917 5,000 (50,730) (978,229) 

10 65.00% 389 4,804 6,215 5,000 22,917 5,000 (50,730) (1,028,959) 11 70.00% 409 5,440 6,215 5,000 22,917 5,000 (17,554) (1,046,513) 12 70.00% 409 5,440 6,215 5,000 22,917 5,000 (17,554) (1,064,067) 13 75.00% 409 5,828 6,215 5,000 5,000 (20,188) (1,084,255) 14 75.00% 409 5,828 6,215 5,000 5,000 (20,188) (1,104,444) 

15 77.50% 409 6,023 6,215 5,000 5,000 (10,047) (1,114,491) 16 77.50% 409 6,023 6,215 5,000 5,000 (10,047) (1,124,538) 17 77.60% 409 6,030 6,215 5,000 5,000 (9,642) (1,134,180) 18 77.70% 409 6,038 6,215 5,000 5,000 (9,236) (1,143,416) 19 78.00% 409 6,061 6,215 5,000 5,000 (8,019) (1,151,435) 20 77.90% 409 6,054 6,215 5,000 5,000 (8,425) (1,159,859) 21 80.00% 409 6,217 6,215 5,000 5,000 94 (1,159,765) 22 80.00% 409 6,217 6,215 5,000 5,000 94 (1,159,671) 23 80.00% 409 6,217 6,215 5,000 5,000 94 (1,159,577) 24 80.00% 409 6,217 6,215 5,000 5,000 94 (1,159,483) 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

13

ACTION PLAN FOR THE CONSORTIUM

Public-Private Partnership 

The Consortium’s action plan will be administered through the AOR. Consortium 

member chambers, select businesses, and economic development professionals 

constitute the private portion of the Partnership’s consortium. Key leaders from these 

groups within the consortium will work with the AOR throughout the proposal term. The 

consortium knows that continued economic development depends on scheduled air 

service with reasonably connecting flights.

The consortium is committed to completing the following action plan. The AOR will 

administer this program with Consortium guidance. The AOR will execute all federal 

grant offers and process reimbursement requests. 

Project Goals

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

Charters’s J31 aircraft to RNO from ENV via EKO. Scheduled air service will allow 

consortium communities to better compete for new business and allow consortium 

communities businesses, industry, government organizations and the gaming 

community as a whole to significantly reduce the amount of travel time and increase 

passenger convenience. 

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. Finalize recruitment of new air service from Public Charters. 

2. Employ air service marketing firm to market, promote, and support new air 

service; follow firm recommendations and implement the plan. This will be done 

with community in-kind funds via the AOR with substantial assistance from the 

Consortium.

3. Execute the plan, monitor for results, adjust where appropriate. 

4. Work to secure additional revenue to support airline service for contingency 

purposes and to ensure longevity.

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. 

An air service marketing firm with a winning record of successes working with SCASD 

grants for air service enhancement will be retained. The budget for this firm’s activities 

is currently planned at $120,000. New marketing dollars will be spent in the local 

Wendover, Elko and other surrounding areas as specified by the marketing firm. 

Marketing in these areas will include advertising, promotions, and public relations; 

advertising mediums will be combined in a campaign to introduce the new air service.
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

14

Other avenues, unknown but suspected at this time, will be followed, as specified in the 

marketing plan development by the marketing firm. Substantial assistance and 

guidance from the consortium, namely the gaming industry is anticipated.

Target Audience

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

likely most effective way to contact this audience is by targeting its consumer at a 

critical time. All of these targets could be approached utilizing the same advertising 

media. For a market like Wendover, or Elko, the use of television, radio, newspaper, 

and outdoor is seemingly 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 potentially less cost-effective. Consortium communities may find that a 

combination of local radio, newspaper, and outdoor billboards is the most cost effective 

approach to an advertising program. The overall direction the marketing effort takes will 

be predicated upon the selected marketing firm’s recommendations.

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 may be valuable. Run advertisements in the Salt Lake 

Tribune, Deseret News, the Elko Nevada News, along with the Wendover Times and on 

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

The consortium may elect to 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 should 

recommendation find these activities of value. Again, an air service marketing firm 

specializing in these needs will be retained to provide recommendations.

Total Incentive Package

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

established. The total incentive package developed herein includes: flight guarantees to 

off-set operating losses, funds for marketing and advertising, and waiver of certain 

airport fees. 

TOTAL INCENTIVE PACKAGE FOR NEW AIR SERVICE

Category Estimated Cost

Proposed SCASD Grant $950,000

Consortium Cash Contribution $180,000

Consortium In-Kind Contribution $395,000 

Total Package Costs $1,525,000
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

15

Sponsors Participation

The Small Community Air Service Development grant is proposed to cover $950,000 of 

the total proposed and the remaining $575,000 in cash and in-kind 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 local businesses to front-load and off-set large upfront subsidy; or, front-load the 

marketing, advertising, and public relations for the new air service if that is a 

recommendation of the marketing firm. 

PERFORMANCE MEASUREMENT

Finalization of Recruitment of Air Service

The AOR and Public Charters representatives have been in communication for the past 

three years to discuss, modify and update the proposal. Public Charters executive staff

indicated a willingness to perform and consortium representatives will again meet with 

Public Charters staff to flesh out details for service initiation. Public Charters has 

provided a letter found in the Appendix following this narrative.

Marketing and Media Plan

The AOR will work with the Consortium as a whole and with the marketing firm to 

develop a marketing and media plan to define and support the proposal. This plan will 

be shared and coordinated through Public Charters at inception and as it evolves. 

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, 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 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. 

Finally, The AOR will Work to secure additional revenue to support airline service to for 

contingency and to ensure longevity. As previously noted the State of Nevada 

shepherded approximately $500,000 worth of funds for air service development a 

number of years ago, but the funds became unavailable due to several financial 

constraints with the 2008 recession. The AOR and the consortium will work with the 

State legislature to once again garner these funds for air service contingency planning. 
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

16

COMMUNITY SUPPORT

Letters of support from select congressional delegations and state and local airport 

representatives are included in the Appendices. Various civic and business 

organizations in the each consortium communities have also submitted letters 

supporting this proposal and scheduled air service for consortium communities and 

these are included in the Appendices.
Wendover Consortium 

2013 Small Community Air Service Development Program

Application Narrative 

17

APPENDIX A



Brooke Chapman

Associate Director

Small Community Program

Via SCASD Application Package

Subject: City of West Wendover, Nevada

Support for Small Community Air Service Development Program

Application, Docket DOT-OST-2013-0120

Dear Secretary Foxx,

I am writing to support the City of West Wendover, which has filed an application with the Department

of Transportation to participate in the Small Community Air Service Development Grant Program forair service from Wendover Airport, Utah to Elko and Reno, Nevada. The proposal has support fromlocal government and business interests in both communities.

West Wendover has completed an Air Service Study, which shows excellent potential for the WestWendover market. Separately, the State of Nevada has studied the northern Nevada market, including

Elko. Both studies show the potential for serving the commercial and government ties these

communities have with Reno and Carson City by air. Commercial air service from Wendover and Elko

to Reno, including passenger and cargo operations, will significantly improve the competitiveenvironment for local businesses in the national and global marketplace. By improving aviation

services along this route, local travelers will be better able to access an important business and

government destination.

The City of Elko is very supportive of the initiative to bring scheduled air service from the WendoverAirport to the Elko and Reno airports, and would appreciate your consideration of West Wendover’s

application for assistance through the Small Community Air Service Development Grant Program.

Cc: Elko City Council

Mark Gibbs, Airport Director (EKO)

File

Thank you for your time reviewing this application

Curtis Calder

Elko City Manager
ET AITTA

July 24,2013 &nuqace

Subject: City of West Wendover, Nevada

Support for Small Community Air Service Development Program

App I ication, Docket DOT-OST-201 3-01 20

Dear Secretary Foxx,

I am writing to support the City of West Wendover, which has filed an application with the Department

of Transportation to participate in the Small Community Air Service Development Grant Program for

air service from Wendover Airport, Utah to Elko and Reno, Nevada. The proposal has support from

local government and business interests in both communities.

West Wendover has completed an Air Service Study, which shows excellent potential for the West

Wendover market. Separately, the State of Nevada has studied the northern Nevada market, including

Elko. Both studies show the potential for serving the commercial and government ties these

communities have with Reno and Carson City by air. Commercial air service from Wendover and Elko

to Reno, including passenger and cargo operations, will significantly improve the competitive

environment for local businesses in the national and global marketplace. By improving aviation

services along this route, local travelers will be better able to access an important business and

government destination.

The Elko Area Chamber of Commerce is very supportive of the initiative to bring scheduled air seruice

from the Wendover Airport to the Elko and Reno airports, and would appreciate your consideration of

West Wendover's application for assistance through the Small Community Air Seruice Development

Grant Program.

Thank you for your time reviewing this application

Sincerely,

i.r')f' 'i

t; rt';,y"{k,:rf- i .j lt L -r

Jennifef Sprout

Chief Executive Officer

Elko Area Chamber of Commerce

July 26, 2013

Brooke Chapman

Associate Director

Small Community Program

Via SCASD Application Package

Subject: City of West Wendover, Nevada

Support for Small Community Air Service Development Program Application, 

Docket DOT-OST-2013-0120

Dear Secretary Foxx,

I am writing to support the City of West Wendover, which has filed an application with the Department of 

Transportation to participate in the Small Community Air Service Development Grant Program for air service 

from Wendover Airport, Utah to Elko and Reno, Nevada. The proposal has support from local government and 

business interests in both communities.

West Wendover has completed an Air Service Study, which shows excellent potential for the West Wendover

market. Separately, the State of Nevada has studied the northern Nevada market, including Elko. Both studies 

show the potential for serving the commercial and government ties these communities have with Reno and 

Carson City by air. Commercial air service from Wendover and Elko to Reno, including passenger and cargo 

operations, will significantly improve the competitive environment for local businesses in the national and 

global marketplace. By improving aviation services along this route, local travelers will be better able to access 

an important business and government destination.

Great Basin College is very supportive of the initiative to bring scheduled air service from the Wendover

Airport to the Elko and Reno airports, and would appreciate your consideration of West Wendover’s

application for assistance through the Small Community Air Service Development Grant Program.

Thank you for your time reviewing this application.

Sincerely,

Mark A. Curtis

President

Great Basin College

WENDOVER AIRFIELD PO Box 159, Wendover Utah 84083

July 24, 2013

Brooke Chapman

Associate Director

Small Community Program

Via SCASD Application Package

Subject: City of West Wendover, Nevada

Support for Small Community Air Service Development Program 

Application, Docket DOT-OST-2013-0120

Dear Secretary Foxx,

The City of West Wendover has filed an application with the Department of Transportation to 

participate in the Small Community Air Service Development Grant Program for air service from 

Wendover Airport, Utah to Elko and Reno, Nevada. Wendover Airport is very much in support of 

this proposal and is further willing to grant some financial concessions to insure that the program is 

successful. 

I participated in the Air Service Study with West Wendover and it showed very promising potential 

for the air service market in the two communities. With a growing business climate and new large 

business development such as the Newmont gold mine, Wendover Airport has an excellent 

opportunity to service the markets of Elko, Reno and Carson City as the Nevada study on the 

Northern Nevada market indicated. With the geographic location of Wendover, air service is 

extremely important in supporting the business climate and growth. Providing air service for both 

passengers and cargo is critical to our economy in these challenging economic times and it will 

serve both government and commercial travelers.

In summary, Wendover Airfield and Tooele County are very supportive of the initiative to bring 

scheduled air service to our airport from the Elko and Reno, Nevada airports. Your consideration 

of the West Wendover application for assistance through the Small Community Air Service 

Development Grant Program will be greatly appreciated.

Sincerely,

James S. Petersen

Tooele County/Wendover Aviation Director