According Richard A. Clarke’s book, “Against All Enemies” ( Which, by the way - you can conveniently purchase right here from this blog.) there were some 4,400 aircraft either departing, arriving or in the air over the continental United States on September 11th.
It was known for sure that morning that four aircraft had been highjacked, but FAA radar tracks indicated at least 10 more aircraft that were off course or not responding to FAA controllers. It was imperative to get these aircraft on the ground to sort out what was happening and to clear the airspace for the few military aircraft available to respond to this crisis.
An article in the Bulletin of the Atomic Scientists, relates how, by 9:25am, all aircraft nationwide not already in the air were grounded. Those aircraft in the air were ordered to return to where the flight originated or to land at a nearby airport. By 2:07pm all domestic aircraft were on the ground and by 5:30pm, all international flights were either on the ground or on U.S. or Canadian soil.
Although Clarke doesn’t mention it, the scheme to sort this all out was part of a Cold War Era Continental Air Defense plan and had been around since the 1960's. The plan is called SCATANA.
SCATANA is one of those government acronyms that stands for Security Control of Air Traffic and Navigation Aids, and can be found in Appendix 17 of Federal Air Regulation Order 7610.4. It’s origins go back to the 1950's when a scheme to clear the continental airspace was recognized by General Earle E. Partridge, Commander in Chief of the Air Defense and Continental Air Defense Commands.
SCATANA is a Cold War Era agreement between the FAA, the FCC and the DoD intended to clear the skies and disable air navigation aids following a confirmed attack by the Soviet Union. With the wide use of the Global Positioning System (GPS), the air navigation aids shutdown - the “ANA” part - of SCATANA is now largely irrelevant.
Once SCATANA has been implemented, the scheme calls for a wartime air traffic priority list (WATPL) to be established to allow essential personnel and aircraft to use the airspace.
The idea is to provide unrestricted airspace for US bomber aircraft and missiles as well as air defense interceptor aircraft. It basically calls for all civilian aircraft to clear CONUS airspace by landing at the nearest available airport or diverting back to their departing airports. Military and FAA controllers would then control all aircraft under the WATPL.
The plan had never been implemented until September 11, 2001, although it was partly activated by accident during a November 9, 1979 false alarm at NORAD when a technician accidently inserted a computer tape used to simulate a nuclear attack into the on-line warning system
In fact, SCATANA wasn’t fully implemented on September 11th. NORAD issued a directive from their Cheyenne Mountain command center that stated, “SCATANA is not implemented - but we’re using prioritization codes within SCATANA for flight approval.”
This brings us to still another acronym, ATSC, Air Traffic Services Cell. An Aviation Week and Space Technology magazine article published in June, 2002 tells us that the ATSC is a small office collocated with the FAA’s Air Traffic Control Systems Command Center in Herndon, Virginia and staffed with military reservists and FAA specialists.
The ATSC was established after the 1990-1991 Gulf War to coordinate movements of military aircraft in the United States, Pacific, and European airspace. For three months after September 11th, it would be the 15-20 reservists and FAA specialists at the ATSC that would implement the limited SCATANA plan and seek approve flights under SCATANA’s WATPL. (Wartime Air Traffic Priority List ) with NORAD and the National Military Command Center (NMCC) in the Pentagon.
The WATPL covered flights by United States and Canadian government officials, aircraft engaged in active continental air defense missions, California forest fire suppression flights, search and rescue missions, and approval of some 200 flights by the United States Treasury Department to distribute about $25 billion in cash among major financial institutions around the country.
Although things have taken a controversial turn since, the story of sorting out the national air traffic system using a 40 year old plan designed to cope with a Soviet bomber attack that had never been updated or fully implemented, seemed to work pretty well.
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