2/28/97 AC91-63B

U.S. Department 

of Transportation 

Federal Aviation 

Administration

Subject: TEMPORARY FLIGHT RESTRICTIONS Date: AC No: 91-63C

 (TFRs/TFR) Initiated by: ATO-R

ADVISORY

CIRCULAR

1. WHAT IS THE PURPOSE OF THIS 

ADVISORY CIRCULAR?

6. RELATED READING MATERIAL. 

Users of this AC should refer to the following: 

This advisory circular (AC): (1) explains and

defines the different Temporary Flight Restrictions

(TFRs); (2) describes conditions under which the

Federal Aviation Administration (FAA) may 

establish a TFR area; (3) explains which FAA

offices are authorized to issue TFRs; (4) lists the

agencies/offices from which the FAA will accept 

requests to establish a TFR area; and (5) provides an

appendix for each type of TFR. 

a. 14 CFR part 91, Section 91.137, Temporary 

Flight Restrictions in the Vicinity of Disaster/Hazard 

Areas; 

b. 14 CFR part 91, Section 91.138, Temporary 

Flight Restrictions in National Disaster Areas in the 

State of Hawaii; 

c. 14 CFR part 91, Section 91.139, Emergency

 Air Traffic Rules; 

2. EFFECTIVE DATE. d. 14 CFR part 91, Section 91.141, Flight

Restrictions in the Proximity of the Presidential and

Other Parties; 

 

This advisory circular is effective on May 20, 2004. 

e. 14 CFR part 91, Section 91.143, Flight

Limitation in the Proximity of Space Flight

Operations; 

3. CANCELLATION.

Advisory Circular, AC 91-63B, Temporary Flight

Restrictions, dated February 28, 1997, is canceled. f. 14 CFR part 91, Section 91.145, Management 

of Aircraft Operations in the Vicinity of Aerial 

Demonstrations and Major Sporting Events; 4. AUTHORITY. 

g. 14 CFR part 99, Section 99.7, Special

Security Instructions; and 

a. The FAA has authority to formulate policy 

regarding the navigable airspace (Title 49 United 

States Code, Section 40103). h. AC 91-45, Aviation Events.

b. Title 14 of the Code of Federal Regulations

(14 CFR) parts 91 and 99 contain regulations for

addressing temporary flight restrictions. 

7. WHAT IS A TFR?

A TFR is a regulatory action issued via the U.S. 

Notice to Airmen (NOTAM) system to restrict 

certain aircraft from operating within a defined area,

on a temporary basis, to protect persons or property

in the air or on the ground. 

5. EXPLANATION OF CHANGES. 

This AC has been updated to clarify the purpose of

each TFR that the FAA may issue, and correct 

references to 14 CFR parts 91 and 99.
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APPENDIX 6

8. WHAT CIRCUMSTANCES MIGHT CAUSE 

THE FAA TO ISSUE A TFR? 

11. WHERE DO I FIND OUT IF A TFR HAS 

While not an exhaustive list, a TFR may be BEEN ISSUED FOR A SPECIFIC AREA?

issued for the following reasons: toxic gas

leaks or spills; fumes from flammable agents 

which, if fanned by rotor or propeller wash, could 

endanger persons or property on the surface or in

other aircraft; volcanic eruptions that could endanger 

airborne aircraft and occupants; hijacking incidents

that may endanger persons or property on the

surface, or airborne aircraft and occupants; aircraft 

accident/incident sites; aviation or ground resources

engaged in wildfire suppression; aircraft relief

activities following a disaster; aerial demonstrations 

or major sporting events; or reasons of national

security. 

National Airspace System (NAS) users or other

interested parties should contact the nearest flight

service station for TFR information. Additionally,

you can find TFR information on automated

briefings, NOTAM publications, and on the Internet 

at http://www.faa.gov. The FAA also distributes

TFR information to aviation user groups and

requests these groups to further disseminate the

information to their members. 

12. CAN A TFR BE IMPLEMENTED IN 

AIRSPACE OUTSIDE OF THE UNITED 

STATES AND ITS TERRITORIES?

9. ARE THERE DIFFERENT TYPES OF 

TFRs? No. TFRs are only implemented for sovereign U.S.

airspace and its territories. If restrictions are located 

in an area that extends beyond the 12-mile coastal

limit or a U.S border, the NOTAM will contain

language limiting the restriction to the airspace of 

the U.S., and its territories and possessions. 

However, the FAA may issue an advisory of any 

hazard or dangerous information outside of the

sovereign U.S. airspace and its territories via the

NOTAM System to inform affected users.

Yes. The FAA issues TFRs under the following 

regulations: 

(1) Section 91.137, Temporary Flight

Restrictions in the Vicinity of Disaster/Hazard 

Areas; 

(2) Section 91.138, Temporary Flight

Restrictions in National Disaster Areas in the State

of Hawaii; If the U.S. decides to restrict U.S. operations or

operators of U.S. registered aircraft from operating 

over certain foreign countries, the FAA issues a 

Special Federal Aviation Regulation. 

(3) Section 91.139, Emergency Air Traffic

Rules; 

(4) Section 91.141, Flight Restrictions in the

Proximity of the Presidential and Other Parties; 13. WHO CAN REQUEST A TFR?

(5) Section 91.143, Flight Limitation in the

Proximity of Space Flight Operations; A TFR may be requested by various entities,

including: military commands; federal

security/intelligence agencies; regional directors of

the Office of Emergency Planning, Civil Defense

State Directors; civil authorities directing or

coordinating organized relief air operations (e.g.,

Office of Emergency Planning; law enforcement

agencies; U.S. Forest Service; state aeronautical

agencies); State Governors; FAA Flight Standards

District Office, aviation event organizers, or 

sporting event officials. 

(6) Section 91.145, Management of Aircraft 

Operations in the Vicinity of Aerial Demonstrations 

and Major Sporting Events; and 

(7) Section 99.7, Special Security Instructions. 

10. HOW DO I FIND OUT MORE 

INFORMATION REGARDING TFRs? 

You can find more detailed information regarding 

TFRs in this AC, in 14 CFR parts 91 and 99, and in

the Aeronautical Information Manual. 

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5/20/04 AC 91-63C 

APPENDIX 6

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14. WHO CAN ISSUE A TFR? 

FAA Headquarters or the Directors of Terminal or 

En Route and Oceanic Area Operations (or their 

designee) having jurisdiction over the area 

concerned may issue a TFR. 

15. TO WHAT DEGREE ARE 

RESTRICTIONS ISSUED? 

Restrictions are kept to the minimum area and 

duration necessary that will address the situation. 

16. DOES THE NOTAM HAVE TO SPECIFY 

A REASON FOR A TFR? 

Any NOTAM that implements a TFR should 

specify the reason for the flight restriction. 

17. WHAT FACTORS DOES THE FAA 

CONSIDER WHEN DETERMINING THE 

NEED FOR A RESTRICTION UNDER THESE 

TFR REGULATIONS? 

The FAA manages the navigable airspace to ensure 

the safety of aircraft and the efficient utilization of 

the airspace. In managing the navigable airspace 

and implementing TFRs, while the following is not 

an exhaustive list, the FAA considers factors such 

as: the area where the event will be held; the effect 

flight restrictions will have on known aircraft 

operations; the estimated duration of the event; the 

degree of public interest; the number of spectators; 

the provisions for spectator safety; the number and 

types of participating aircraft; the use of mixed 

high/low performance aircraft; the impact on nonparticipating aircraft; the weather minimums; and 

the emergency procedures that will be in effect. 

18. IF I HAVE ANY QUESTIONS 

REGARDING A TFR, WHOM SHOULD I 

CONTACT? 

Direct any questions or concerns regarding TFRs to 

the FAA Directors of Terminal or En Route and 

Oceanic Area Operations (or their designee) having 

management jurisdiction over the TFR area. 

You may also contact the FAA Headquarters 

Airspace and Rules Manager, Office of System 

Operations and Safety, ATO-R, Washington, D.C., 

at (202) 267-8783. 

Sabra W. Kaulia 

Director, System Operations and Safety
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APPENDIX 6

APPENDIX 1

SECTION 91.137 - TEMPORARY FLIGHT 

RESTRICTIONS IN THE VICINITY OF 

DISASTER/HAZARD AREAS 

1. What is the purpose and use of a TFR issued 

under this section? 

TFRs issued under this section address 

disaster/hazard situations and restrict flight

operations within specified airspace, on a temporary 

basis, to provide protection of persons or property in

the air or on the ground. 

2. Who can issue a TFR under this section? 

Except for hijacking situations, FAA Headquarters 

or the Directors of Terminal or En Route and

Oceanic Area Operations (or their designee) having 

jurisdiction over the area concerned may issue a

TFR under this section.

3. Who can issue a TFR for a hijacking 

situation? 

The respective Directors of Terminal or En Route 

and Oceanic Area Operations (or their designee)

having jurisdiction over the area of concern, in

consultation with the Transportation Security

Administration, will issue a TFR to address 

hijacking situations. 

4. Who can request a TFR under this section? 

A TFR may be requested by various entities,

including military commands; regional directors of 

the Office of Emergency Planning; Civil Defense

State Directors; civil authorities directing or

coordinating air operations associated with disaster 

relief; civil authorities directing or coordinating

organized relief air operations (including

representatives of the Office of Emergency 

Planning, U.S. Forest Service, and state aeronautical

agencies); and law enforcement agencies. 

5. Are there any specifics that apply to each 

subparagraph of Section 91.137? 

Yes, they are as follows: 

a. Section 91.137(a)(1). Restrictions issued

under this Section prohibit all aircraft from operating

in the designated area unless that aircraft is 

participating in the disaster/hazard relief activities

and is operated under the direction of the official in

charge of on-scene emergency response activities. 

b. Section 91.137(a)(2). Restrictions issued

under this Section prohibit all aircraft from operating

in the designated area unless at least one of the

following conditions are met: 

(1) The aircraft is participating in hazard relief 

activities and is operating under the direction of the

official in charge of on-scene emergency response 

activities.

(2) The aircraft is carrying law enforcement

officials. 

(3) The aircraft is operating under an air traffic 

control (ATC) approved instrument flight rules

(IFR) flight plan. 

Note: ATC must coordinate with the official in

charge of on-scene emergency response activities

prior to allowing any IFR or visual flight rules

(VFR) aircraft to enter into the TFR area. 

(4) The aircraft is operating directly to or from 

an airport within the area, or is necessitated by the

impracticability of VFR flight above or around the 

area due to weather or terrain; the operation does not

hamper or endanger relief activities and is not

conducted for observing the disaster. Notification 

must be given to the ATC/Flight Service Station 

(FSS) facility specified in the NOTAM for 

coordination with the official in charge of on-scene

emergency response activities. 

(5) The aircraft is carrying properly accredited 

news representatives, and before entering the area, a

flight plan is filed with the ATC/FSS facility

specified in the NOTAM, and the operation is

conducted above the altitude used by the disaster

relief aircraft, unless otherwise authorized by the

official in charge of on-scene emergency response 

activities.

c. Section 91.137(a)(3). Restrictions issued

under this Section prohibit all aircraft from operating

in the designated area unless at least one of the

following conditions are met:

(1) The aircraft is operating directly to or from 

an airport within the area, or is necessitated by the

impracticability of VFR flight above or around the 

area due to weather or terrain, and the operation is 

not conducted for the purpose of observing the

 

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AAC 91-63C 5/20/04

APPENDIX 6

incident or event. Notification must be given to the

ATC/FSS facility specified in the NOTAM for 

coordination with the official in charge of the

activity. 

(2) The aircraft is operating under an ATC 

approved IFR flight plan. 

(3) The aircraft is carrying incident or event

personnel, or law enforcement officials. 

(4) The aircraft is carrying properly accredited

news representatives and, before entering the area, a 

flight plan is filed with the appropriate FSS or ATC 

facility specified in the NOTAM.

6. What situations may warrant a TFR under 

this section? 

Situations that may warrant a TFR under 

Section 91.137 include, but are not limited to the

following: 

a. 14 CFR Section 91.137(a)(1): toxic gas leaks 

or spills; fumes from flammable agents which, if 

fanned by rotor or propeller wash could endanger

persons or property on the surface, or if entered by 

an aircraft could endanger persons or property in the

air; volcanic eruptions that could endanger airborne

aircraft and occupants; nuclear accident or incident;

and hijackings. 

b. 14 CFR Section 91.137(a)(2): aviation or 

ground resources engaged in wildfire suppression; 

and aircraft relief activities following a disaster

(e.g., earthquake, tidal wave, flood, etc.). 

c. 14 CFR Section 91.137(a)(3): disaster/hazard 

incidents of limited duration that would attract an

unsafe congestion of sightseeing aircraft, such as 

aircraft accident sites. 

7. What information should be included in 

flight plans and notifications made with an FSS 

or ATC facility when looking to operate within a 

TFR issued under this section? 

The following information should be included in

filed flight plans: aircraft identification, type, and

color; radio communications frequencies to be used;

proposed times of entry of, and exit from, the 

designated area; name of news media or

organization and purpose of the flight; and, any

other information requested by ATC. 

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APPENDIX 6

APPENDIX 2

SECTION 91.138 - TEMPORARY FLIGHT 

RESTRICTIONS IN NATIONAL DISASTER 

AREAS IN THE STATE OF HAWAII

1. What is the purpose and use of a TFR issued 

under this section? 

TFRs issued under this section address a 

determination that an inhabited area within a

declared national disaster area in the State of Hawaii 

needs protection for humanitarian reasons.

2. Who can request a TFR under this section? 

The Governor of the State of Hawaii, or the 

Governor’s designee may request a TFR under this 

section. 

3. What restrictions apply when TFRs are

issued under this section? 

The TFR will specify the extent and duration

necessary to protect persons and property on the

surface. Restrictions issued under this section 

prohibit all aircraft from operating in the designated 

area unless at least one of the following conditions

are met: 

a. Authorization is obtained from the official in

charge of associated emergency or disaster relief 

response activities, and the aircraft is operated under 

the conditions of that authorization;

b. The aircraft is carrying law enforcement 

officials;

c. The aircraft is carrying persons involved in an 

emergency or a legitimate scientific purpose;

d. The aircraft is carrying properly accredited 

newspersons, and before entering the area, a flight

plan is filed with the appropriate FAA or ATC 

facility specified in the NOTAM, and the operation 

is conducted in compliance with the conditions and

restrictions established by the official in charge of

on-scene emergency response activities; or, 

e. The aircraft is operating in accordance with

an ATC clearance or instruction.

4. For what length of time is a TFR effective 

under this section? 

A NOTAM issued under this section is effective 

for 90 days or until the national disaster area

designation is terminated, whichever comes first, or 

otherwise terminated by notice or extended at the

request of the Governor of the State of Hawaii or the

Governor’s designee. 

5. What office is responsible for issuing a TFR

under this section? 

The Airspace and Rules Manager, Office of System

Operations and Safety, ATO-R can issue a TFR 

under this section.

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APPENDIX 6

APPENDIX 3

SECTION 91.141 - FLIGHT RESTRICTIONS 

IN THE PROXIMITY OF THE 

PRESIDENTIAL AND OTHER PARTIES 

1. What is the purpose and use of a TFR issued 

under this section? 

TFRs issued under this section address security with

respect to airspace over presidential and other 

parties. Specifically, no person may operate an

aircraft over or in the vicinity of any area to be

visited or traveled by the President, the Vice

President, or other public figures contrary to the

restrictions established by the FAA and published in

a NOTAM. 

2. Who can request a TFR under this section? 

This TFR may be requested by the Washington

headquarters office of the U.S. Government agency

responsible for the protection of the person

concerned. This agency will contact FAA 

Headquarters in accordance with established 

procedures and request the necessary regulatory

action. 

3. What office is responsible for issuing a TFR 

under this section? 

The ATO-R/Director of System Operations Security 

(or their designee) can issue a TFR under this 

section. 

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APPENDIX 6

APPENDIX 4

SECTION 91.143 - FLIGHT LIMITATION IN 

THE PROXIMITY OF SPACE FLIGHT 

OPERATIONS 

1. What is the purpose and use of a TFR issued 

under this section? 

TFRs issued under this section address space flight

operations. Specifically, no person may operate an

aircraft of U.S. registry, or pilot an aircraft under the 

authority of an airman certificate issued by the FAA 

within areas designated in a NOTAM for space 

flight operations except when authorized by ATC, or 

the proponent for the flight operation.

2. Who can issue a TFR under this section? 

 

FAA Headquarters or the Directors of Terminal or

En Route and Oceanic Area Operations (or their

designee) having control jurisdiction over the

affected airspace can issue a TFR under this section. 

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APPENDIX 6

APPENDIX 5

SECTION 91.145 – MANAGEMENT OF 

AIRCRAFT OPERATIONS IN THE VICINITY

OF AERIAL DEMONSTRATIONS AND

MAJOR SPORTING EVENTS 

1. What situations warrant a TFR under this 

section? 

Situations that may warrant a TFR under this section

include, but are not limited to: military and civilian

aerial demonstrations or major sporting events of 

limited duration to protect persons or property on the

surface or in the air, to maintain air safety and 

efficiency, or to prevent the unsafe congestion of

aircraft in the vicinity of an aerial demonstration or

major sporting event.

2. What office is responsible for issuing a TFR 

under this section? 

The Airspace and Rules Manager, Office of System

Operations and Safety, ATO-R oversees all TFRs

issued under this section. 

3. When should the TFR request be sent in for 

processing? 

A TFR request should be sent to the Airspace and 

Rules Manager, Office of System Operations and

Safety, ATO-R at least 45 days in advance of an 

aerial demonstration or major sporting event. 

4. Who can request a TFR under this section? 

An aviation event organizer or participant may 

request a TFR under this section. 

5. How do you request a TFR under this 

section? 

 a. For an aerial demonstration – The event

organizer should submit two separate requests: (1) 

One to the Directors of Terminal or En Route and

Oceanic Area Operations (or their designee) at

least 45 days prior to the event; and (2) An

application for a certificate of waiver or 

authorization (FAA Form 7711-2) for the restriction

to the appropriate Flight Standards District

Office, 90 days before the event for a civilian aerial

demonstration and 120 days before the event for a 

military aerial demonstration.

 b. For a major sporting event – The TFR request 

should be sent to the Directors of Terminal or En

Route and Oceanic Area Operations (or their

designee) at least 45 days in advance of the major 

sporting event. The Directors of Terminal or En 

Route and Oceanic Area Operations (or their

designee) will assess the need for a TFR and forward

their recommendation to the Airspace and Rules 

Manager, Office of System Operations and Safety, 

ATO-R. The Airspace and Rules Manager will 

determine whether a TFR is necessary and issue the

TFR accordingly. 

6. Who can operate in these areas? 

Restrictions issued under this section prohibit the

operation of any aircraft or device, or any activity

within the designated airspace area except in 

accordance with the authorizations, terms, and 

conditions of the TFR published in the NOTAM,

unless otherwise authorized by: (1) Air Traffic 

Control; or (2) A Certificate of Waiver or

Authorization FAA Form 7711-1 issued for the

aerial demonstration by Flight Standards. 

Note: ATC must coordinate with the official 

responsible for the aerial demonstration prior to

authorizing VFR or IFR aircraft to operate within 

the restricted airspace.

7. Can a TFR be requested for an event (or part 

of an event) that is outside of controlled airspace? 

At times it may be necessary to issue restrictions to

protect airspace not contained within controlled 

airspace. For an aerial demonstration, if any segment

of the requested airspace is outside of controlled

airspace, a restriction may be issued if the following 

criteria are met: (1) Military aircraft are conducting 

aerobatic demonstrations; (2) Civilian aircraft that

operate in excess of 200 knots are conducting 

aerobatic demonstrations; and (3) Parachute 

demonstration teams are performing. 

Note: Aerial demonstrations and sporting events

occurring within Class B airspace areas may be

handled through existing ATC procedures, without 

additional restrictions. However, each situation is 

unique and should be addressed as such. 

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APPENDIX 6

APPENDIX 6 

SECTION 99.7 – SPECIAL SECURITY 

INSTRUCTIONS 

1. What is the purpose and use of a TFR 

issued under this section? 

The FAA, in consultation with the Department of 

Defense, or other Federal security/intelligence

agencies may issue special security instructions to 

address situations determined to be detrimental to

the interests of national defense. 

2. Who does this section apply to? 

Each person operating an aircraft in an Air Defense 

Identification Zone (ADIZ) or Defense Area shall

(in addition to applicable sections of 14 CFR

part 99) comply with special security instructions 

issued by the Administrator in the interest of 

national security, under agreement between the 

FAA and the Department of Defense or other

Federal security/intelligence agencies. 

3. What is an Air Defense Identification Zone 

(ADIZ)? 

An ADIZ is an area of airspace over land or water in

which the ready identification, location, and control

of civil aircraft is required in the interest of national 

security. 

4. What is a Defense Area? 

Unless designated as an ADIZ, a Defense Area 

is any airspace of the U.S., or its territories, in

which the control of aircraft is required for 

reasons of national security.

5. Who can request a TFR under this section? 

The Department of Defense, or other Federal 

security/intelligence agency may request a TFR 

under this section. 

6. What FAA office is responsible for issuing a 

TFR under this section? 

The Airspace and Rules Manager, Office of System 

Operations and Safety, ATO-R can issue a TFR

under this section. 

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