You can think of it as a voice on the radio whose whole job is empty space. Aircraft cannot see each other well, and they cannot stop, so somebody on the ground holds the picture of the whole sky and hands out room in it: you go now, you wait, you turn left. The two meanings are just two ends of that radio — the work being done, and the people doing it.
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指揮飛機：那份工作，和做這件事的人
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guiding aircraft (the work) · noun
The work of guiding aircraft from the ground: people use radio to tell pilots when to take off, which way to fly, and when to land, so that no two aircraft come too close.
航空交通管制