In 1919, the International Commission for Air Navigation (ICAN) was created to develop General Rules for Air Traffic. Its rules and procedures were applied in most countries where aircraft operated. The United States did not sign the ICAN Convention, but later developed its own set of air traffic rules after passage of the Air Commerce Act of 1926. This legislation authorized the Department of Commerce to establish air traffic rules for the navigation, protection, and identification of aircraft, including rules as to safe altitudes of flight and rules for the prevention of collisions between vessels and aircraft. The first rules were brief and basic. For example, pilots were told not to begin their takeoff until there is no risk of collision with landing aircraft and until preceding aircraft are clear of the field. As traffic increased, some airport operators realized that such general rules were not enough to prevent collisions. They began to provide a form of air traffic control (ATC) based on visual signals. Early controllers, like Archie League (one of the first system’s flagmen), stood on the field, waving flags to communicate with pilots.
As more aircraft were fitted for radio communication, radio-equipped airport traffic control towers began to replace the flagmen. In 1930, the first radio-equipped control tower in the United States began operating at the Cleveland Municipal Airport. By 1935, about 20 radio control towers were operating.