8:34 a.m. September 11, 2001: Boston Air Traffic Control Center Calls FAA Facility at Otis Air Base

The FAA’s Boston Center contacts the FAA’s Cape Cod facility, located on Otis Air National Guard Base at Cape Cod, Massachusetts, and requests that it inform the military about the problems with Flight 11. [Federal Aviation Administration, 9/17/2001 ; 9/11 Commission, 7/24/2004, pp. 20] Otis Air Base is one of NORAD’s seven alert sites in the continental United States, which keeps two armed fighter jets ready for immediate takeoff. [Filson, 2003, pp. 50; 9/11 Commission, 7/24/2004, pp. 17]
Supervisor Calls Otis, Supposedly Violating Protocol - Boston Center supervisor Daniel Bueno calls the tower at Otis. According to author Lynn Spencer, Bueno “knows it’s not standard operating procedure to call the military directly—that’s supposed to be done by FAA headquarters.” [Spencer, 2008, pp. 22] Indeed, according to the 9/11 Commission, by trying to contact the base this way, through the FAA’s Cape Cod facility, “Boston Center did not follow the protocol in seeking military assistance through the prescribed chain of command.” [9/11 Commission, 7/24/2004, pp. 20] But Bueno has “checked the FAA regulation manual, and in the back under section FAAO 7610.4J, Appendix 16, it states that fighters can be launched directly at FAA request, so he is going to make that happen. He may not be FAA headquarters, but he is FAA!” [Spencer, 2008, pp. 22]
Bueno Requests Fighters, Told to Call NEADS - Bueno speaks to a manager at the FAA Cape Cod facility. He says Flight 11 has lost its identification signal and appears to be headed toward Manhattan; it looks like a possible hijacking. He asks the manager to contact Otis Air National Guard Base, so as to get fighters airborne to tail Flight 11. [Filson, 2003, pp. 47; 9/11 Commission, 8/26/2004, pp. 12 ] But the manager tells Bueno that he must follow the protocol, which is to contact NORAD’s Northeast Air Defense Sector (NEADS). The manager says: “You’ve got to go through the proper channels. They’re the only ones with the authority to initiate a scramble order.” Following this call, the manager will contact the operations center at Otis Air Base to let it know that it might soon be receiving a call from NEADS (see (Shortly After 8:34 a.m.) September 11, 2001). [Spencer, 2008, pp. 22 and 27]
Otis Pilots Complain - The two alert pilots at Otis Air Base will later criticize Bueno’s actions. One of them, Major Daniel Nash, will complain: “It sounds like the FAA didn’t have their [act] together at all when they were calling the [Otis] tower.… To me, it sounded like there was someone who didn’t know what they were doing.” [Boston Globe, 9/11/2005] Lt. Col. Timothy Duffy, the other alert pilot, will later comment: “It didn’t happen the way it was supposed to.… We were the ones who were contacted right away and knew about it before the air defense sector.” [Filson, 2003, pp. 50]