There are many small airstrips in the world without a control tower. This is safe, as these small airstrips are only used by small planes (and in good wheather, but this isn't simulated in simutrans) and the pilots can maintain separation by just looking out of the window. Indeed, in the early days of aviation control towers didn't exist. Large airports on the other hand always have a control tower, and flying would be dangerous if they hadn't. This is because large planes fly fast and have a large turn radius, so they can't see each other soon enough and have to rely on air traffic control to maintain separation. Maybe it would be a good compromise to only require control towers for fast planes. Or, maybe easier to implement, assuming nobody is going to build a long runway if the airport is not going to be used by fast planes, require a control tower on airports that have a runway longer than, say, 800 meters.