Even the most draconian proposal — to reinstate flight limits to ease the bottlenecks at Kennedy — might backfire, industry analysts say, because airlines would end up shifting flights to Newark Airport, which is already strained. "Kennedy is the perfect example of putting 10 pounds in a 5-pound bag," said Darryl Jenkins, a longtime airline consultant. "J.F.K. was never set up to be a hub for anybody; its been a gateway," he said. But in recent years it became a hub for JetBlue and Delta. These days, delays at Kennedy are so bad, he said, that "it's backing up the whole country.".