The F-11 was intended to meet the same USAAF operational objective as the
Republic XF-12 Rainbow: a fast, long-range, high-altitude photographic reconnaissance aircraft. A highly modified version of the earlier private-venture
Hughes D-2, it resembled the
Lockheed P-38 Lightning, but was much larger and heavier. Hughes Aircraft Company founder Howard Hughes had first promoted the D-2 as a "pursuit type airplane", (i.e. a
fighter aircraft), but it lacked both the maneuverability of a fighter and the load-carrying capacity of
bomber, and could not accommodate required military equipment; additionally, the USAAF
Air Materiel Command (AMC) objected to its wooden
Duramold construction due to a perceived lack of durability under fire. Hughes was determined to win a military contract but soon realized that the USAAF was highly unlikely to accept the D-2, so he began petitioning USAAF leaders to issue a contract to redesign it for
photographic reconnaissance, and spent several million dollars hiring additional staff and opening a new engineering office for the effort. Hughes campaigned the USAAF in Washington, enlisting his father's friend,
Secretary of Commerce Jesse Holman Jones, who met with President
Franklin Roosevelt in June 1942 to discuss the project. The outcome of the visit was inconclusive. However, around this time, USAAF leaders were debating the need for a dedicated, purpose-designed reconnaissance aircraft with greater capabilities than existing converted fighters and bombers. The need was particularly acute in the
Pacific theater because the loss of air bases in China placed many strategic targets in Japan beyond the range of almost all existing Allied aircraft; the
Boeing B-29 Superfortress would be able to reach these areas, but some USAAF leaders objected to diverting this valuable
strategic bomber to the long-range reconnaissance role. In January 1943, the USAAF launched a program to procure a dedicated reconnaissance aircraft with superior range, speed, and altitude capabilities. Preliminary specifications were issued in April of that year.
Boeing proposed a heavily modified B-29, while the
Lockheed Aircraft Company proposed a version of its experimental
XP-58 fighter. The Hughes Aircraft and
Republic Aviation proposals would become the XF-11 and XF-12 respectively. Howard Hughes found out that Colonel
Elliott Roosevelt, the president's son and a USAAF reconnaissance commander, would visit Hughes Aircraft in August 1943 in the process of surveying reconnaissance aircraft proposals. When Roosevelt and his team arrived on August 11, Hughes' public relations agent John Meyer showed them the D-2 prototype, took them on a tour of several Hollywood film studios, and introduced Roosevelt to actress
Faye Emerson, whom Roosevelt would later marry. Meyer encouraged Roosevelt and his entourage to stay in a private home at his expense, and when Roosevelt demurred, Meyer paid their hotel bill. After Roosevelt left, Meyer invited him to parties he was hosting in New York City and took him to Manhattan nightclubs, where Meyer paid. On August 20, Roosevelt submitted a report to General
Henry "Hap" Arnold, chief of the
U.S. Army Air Forces, recommending the Hughes proposal. Arnold ordered 100 F-11s for delivery beginning in 1944, overriding the strenuous objections of AMC, which held that Hughes Aircraft lacked the industrial capacity and track record to deliver on its founder's promises, and recommended that Arnold should instead approve the reconnaissance version of the XP-58. Arnold later regretted the decision, saying that he made it "much against my better judgment and the advice of my staff" after consultations with the
White House. A preliminary $43 million contract issued on 11 October 1943 was contested by Hughes, who sought $3.6 to $3.9 million in compensation for the development of the D-2, and objected to AMC's requirements for all-metal construction,
self-sealing fuel tanks, and various other major design changes that undermined his contention that the F-11 was directly derived from the D-2. The USAAF strongly objected, arguing that the D-2 project was initiated without USAAF input, and that Hughes had continuously withheld information about the aircraft. In another complication, the
War Production Board (WPB) wanted Hughes to build a new assembly plant near
Hughes Tool Company headquarters in Houston, where labor costs were lower than in southern California. The WPB eventually relented and allowed Hughes Aircraft to use its existing
Culver City, California, assembly plant, and the USAAF made some small design concessions; however, Hughes failed to secure full reimbursement and ultimately agreed to most of the design changes, notably including the elimination of Duramold. The protracted negotiations consumed the better part of ten months, and the final contract was awarded on 1 August 1944. Hughes was awarded $1.6 million in reimbursement. The program was plagued by managerial and logistical delays. By early 1944, Hughes was suffering from mental strain from the demands of managing both the F-11 and
Hughes H-4 Hercules projects, and had become withdrawn. Warned that the USAAF was considering canceling the F-11 due to a lack of progress, Hughes hired Charles Perrell, former vice president of production at
Consolidated Vultee, to manage the program, promising him full and unconditional control. Perrell found Hughes Aircraft rife with inefficiency and suffering from a "complete lack of experience in the design and construction of airplanes in general." His efforts to reorganize were hindered by resistance from senior Hughes Aircraft engineers, who were accustomed to a freewheeling work atmosphere, and from Hughes Tool executives who feared that Perrell would usurp their authority over the aircraft company. 21 engineers, including chief engineer Ed West, resigned in a May 1944 dispute over their offices being moved from
Brea, California, to the Culver City plant. The prototype's wings–subcontracted to
Fleetwings–were delivered six months behind schedule in April 1945. With the end of the European war in May 1945, the order for 100 F-11s was reduced to just three, a static test model and the two prototypes, and the USAAF de-prioritized the project. The engines were delivered seven months behind schedule in September 1945. By this time, Perrell had been successful in reforming the program, but there was no longer any impetus to deliver 98 production aircraft, and Hughes returned from self-imposed exile and began to interfere despite his earlier promises not to do so. Relations between the two men deteriorated and Hughes had Perrell fired in December. ==Design==