Unity of command problems in the Air Corps The basis of the Army Air Forces arose in the formulation of theories of
strategic bombing at the
Air Corps Tactical School that gave new impetus to arguments for an independent air force, beginning with those espoused by Brig. Gen.
Billy Mitchell that led to his later
court-martial. Despite a perception of resistance and even obstruction then by the bureaucracy in the War Department
General Staff (WDGS), much of which was attributable to lack of funds, the Air Corps later made great strides in the 1930s, both organizationally and in doctrine. A strategy stressing precision bombing of industrial targets by heavily armed, long-range bombers emerged, formulated by the men who would become its leaders. A major step toward a separate air force came in March 1935, when the command of all combat air units within the Continental United States (CONUS) was centralized under a single organization called the
"General Headquarters Air Force". Since 1920, control of aviation units had resided with commanders of the
corps areas (a peacetime ground forces administrative echelon), following the model established by commanding General
John J. Pershing during World War I. In 1924, the General Staff planned for a wartime activation of an Army general headquarters (GHQ), similar to the
American Expeditionary Forces model of
World War I, with a GHQ Air Force as a subordinate component. Both were created in 1933 when a small conflict with Cuba seemed possible following a ''coup d'état'' but was not activated. The activation of GHQ Air Force represented a compromise between strategic airpower advocates and ground force commanders who demanded that the Air Corps mission remain tied to that of the land forces. Airpower advocates achieved a centralized control of air units under an air commander, while the WDGS divided authority within the air arm and assured a continuing policy of support of ground operations as its primary role. GHQ Air Force organized combat groups administratively into a strike force of three wings deployed to the
Atlantic, Pacific, and
Gulf coasts but was small in comparison to European air forces. Lines of authority were difficult, at best, since GHQ Air Force controlled only operations of its combat units while the Air Corps was still responsible for doctrine, acquisition of aircraft, and training. Corps area commanders continued to exercise control over airfields and administration of personnel, and in the overseas departments, operational control of units as well. Between March 1935 and September 1938, the commanders of GHQ Air Force and the Air Corps, Major Generals
Frank M. Andrews and
Oscar Westover respectively, clashed philosophically over the direction in which the air arm was moving, exacerbating the difficulties. The expected activation of Army General Headquarters prompted
Army Chief of Staff George C. Marshall to request a reorganization study from Chief of the Air Corps Maj. Gen.
Henry H. Arnold resulting on 5 October 1940 in a proposal for creation of an air staff, unification of the air arm under one commander, and equality with the ground and supply forces. Arnold's proposal was immediately opposed by the General Staff in all respects, rehashing its traditional doctrinal argument that, in the event of war, the Air Corps would have no mission independent of support of the ground forces. Marshall implemented a compromise that the Air Corps found entirely inadequate, naming Arnold as acting "Deputy Chief of Staff for Air" but rejecting all organizational points of his proposal. GHQ Air Force instead was assigned to the control of Army General Headquarters, although the latter was a training and not an operational component, when it was activated in November 1940. A division of the GHQ Air Force into four geographical air defense districts on 19 October 1940 was concurrent with the creation of air forces to defend
Hawaii and the
Panama Canal. The air districts were converted in March 1941 into numbered air forces with a subordinate organization of 54 groups.
Army Air Forces created The likelihood of U.S. participation in
World War II prompted the most radical reorganization of the
aviation branch in its history, developing a structure that both unified command of all air elements and gave it total autonomy and equality with the ground forces by March 1942. In the spring of 1941, the success in Europe of air operations conducted under centralized control (as exemplified by the British
Royal Air Force and the German
Wehrmacht's military air arm, the
Luftwaffe) made clear that the splintering of authority in the American air forces, characterized as "
hydra-headed" by one congressman, had caused a disturbing lack of clear channels of command. Less than five months after the rejection of Arnold's reorganization proposal, a joint U.S.-British strategic planning agreement (
ABC-1) refuted the General Staff's argument that the Air Corps had no wartime mission except to support ground forces. A struggle with the General Staff over control of air defense of the United States had been won by airmen and vested in four command units called "numbered air forces", but the bureaucratic conflict threatened to renew the dormant struggle for an independent United States Air Force. Marshall had come to the view that the air forces needed a "simpler system" and a unified command. Working with Arnold and
Robert A. Lovett, recently appointed to the long-vacant position of Assistant Secretary of War for Air, he reached a consensus that quasi-autonomy for the air forces was preferable to immediate separation. Arnold assumed the title of
Chief of the Army Air Forces, creating an echelon of command over all military aviation components for the first time and ending the dual status of the Air Corps and GHQ Air Force, which was renamed
Air Force Combat Command (AFCC) in the new organization. The AAF gained the formal "Air Staff" long opposed by the General Staff, and a single air commander, The commanding general of AFCC gained control of his stations and court martial authority over his personnel, nor of air units, bases, and personnel located outside the continental United States. Arnold and Marshall agreed that the AAF would enjoy a general autonomy within the War Department (similar to that of the
Marine Corps within the
Department of the Navy) until the end of the war, while its commanders would cease lobbying for independence. Marshall, a strong proponent of airpower, understood that the Air Force would likely achieve its independence following the war. Soon after the Japanese
attack on Pearl Harbor on 7 December 1941, in recognition of importance of the role of the Army Air Forces, Arnold was given a seat on the
Joint Chiefs of Staff, the planning staff that served as the focal point of American strategic planning during the war, in order that the United States would have an air representative in staff talks with their British counterparts on the
Combined Chiefs. In effect the head of the AAF gained equality with Marshall. While this step was never officially recognized by the
United States Navy, and was bitterly disputed behind the scenes at every opportunity, it nevertheless succeeded as a pragmatic foundation for the future separation of the Air Force.
Reorganizations of the AAF Circular No. 59 reorganization Under the revision of AR 95–5, the Army Air Forces consisted of three major components: Headquarters AAF, Air Force Combat Command, and the Air Corps. Yet the reforms were incomplete, subject to reversal with a change of mood at the War Department, and of dubious legality. By November 1941, on the eve of U.S. entry into the war, the division of authority within the Army as a whole, caused by the activation of Army GHQ a year before, had led to a "battle of memos" between it and the WDGS over administering the AAF, prompting Marshall to state that he had "the poorest command post in the Army" when defense commands showed a "disturbing failure to follow through on orders". When this plan was not given any consideration, Arnold reworded the proposal the following month which, in the face of Marshall's dissatisfaction with Army GHQ, the War Plans Division accepted. Just before Pearl Harbor, Marshall recalled an Air Corps officer, Brig. Gen.
Joseph T. McNarney, from an observer group in England and appointed him to chair a "War Department Reorganization Committee" within the War Plans Division, using Arnold's and Spaatz's plan as a blueprint. After war began, Congress enacted the
First War Powers Act on 18 December 1941 endowing President
Franklin D. Roosevelt with virtual
carte blanche to reorganize the
executive branch as he found necessary. Under it, on 28 February 1942, Roosevelt issued Executive Order 9082, based on Marshall's recommendation and the work of McNarney's committee. The EO changed Arnold's title to
Commanding General, Army Air Forces effective 9 March 1942, making him co-equal with the commanding generals of the new
Army Ground Forces and
Services of Supply, the other two components of the
Army of the United States. The War Department issued Circular No. 59 on 2 March that carried out the executive order, intended (as with the creation of the
Air Service in World War I) as a wartime expedient to expire six months after the end of the war. The three components replaced a multiplicity of branches and organizations, reduced the WDGS greatly in size, and proportionally increased the representation of the air forces members on it to 50%. In addition to dissolving both Army General Headquarters and the chiefs of the
combat arms, and assigning their training functions to the Army Ground Forces, War Department Circular 59 reorganized the Army Air Forces, disbanding both Air Force Combat Command and the Office of Chief of the Air Corps (OCAC), eliminating all its training and organizational functions, which removed an entire layer of authority. Taking their former functions were eleven numbered air forces (later raised to sixteen) and six support commands (which became eight in January 1943). The circular also restated the mission of the AAF, in theory removing from it responsibility for strategic planning and making it only a Zone of Interior "training and supply agency", but from the start AAF officers viewed this as a "paper" restriction negated by Arnold's place on both the Joint and Combined Chiefs, which gave him strategic planning authority for the AAF, a viewpoint that was formally sanctioned by the War Department in mid-1943 and endorsed by the president. The Circular No. 59 reorganization directed the AAF to operate under a complex division of administrative control performed by a policy staff, an operating staff, and the support commands (formerly "field activities" of the OCAC). The former field activities operated under a "bureau" structure, with both policy and operating functions vested in staff-type officers who often exercised command and policy authority without responsibility for results, a system held over from the Air Corps years. The concept of an "operating staff", or directorates, was modeled on the RAF system that had been much admired by the observer groups sent over in 1941, and resulted from a desire to place experts in various aspects of military aviation into key positions of implementation. However functions often overlapped, communication and coordination between the divisions failed or was ignored, policy prerogatives were usurped by the directorates, and they became overburdened with detail, all contributing to the diversion of the directorates from their original purpose. The system of directorates in particular handicapped the developing operational training program (see
Combat units below), preventing establishment of an OTU command and having a tendency to micromanage because of the lack of centralized control. Four main directorates—Military Requirements, Technical Services, Personnel, and Management Control—were created, each with multiple sub-directorates, and eventually more than thirty offices were authorized to issue orders in the name of the commanding general. and several traditional offices that had been moved to the operating staff, including the Air Judge Advocate and Budget Officer, back under the policy staff umbrella. When this adjustment failed to resolve the problems, the system was scrapped and all functions combined into a single restructured air staff. The hierarchical "command" principle, in which a single commander has direct final accountability but delegates authority to staff, was adopted AAF-wide in a major reorganization and consolidation on 29 March 1943. The four main directorates and seventeen subordinate directorates (the "operating staff") were abolished as an unnecessary level of authority, and execution of policies was removed from the staffs to be assigned solely to field organizations along functional lines. The policy functions of the directorates were reorganized and consolidated into offices regrouped along conventional military lines under six assistant chiefs of air staff (AC/AS): Personnel; Intelligence; Operations, Commitments, and Requirements (OC&R); Materiel, Maintenance, and Distribution (MM&D); Plans; and Training. Command of Headquarters AAF resided in a Chief of Air Staff and three deputies. This wartime structure remained essentially unchanged for the remainder of hostilities. In October 1944 Arnold, to begin a process of reorganization for reducing the structure, proposed to eliminate the AC/AS, Training and move his office into OC&R, changing it to Operations, Training and Requirements (OT&R) but the mergers were never effected. On 23 August 1945, after the capitulation of Japan, realignment took place with the complete elimination of OC&R. The now five assistant chiefs of air staff were designated AC/AS-1 through -5 corresponding to Personnel, Intelligence, Operations and Training, Materiel and Supply, and Plans. Most personnel of the Army Air Forces were drawn from the Air Corps. In May 1945, 88 per cent of officers serving in the Army Air Forces were commissioned in the Air Corps, while 82 per cent of enlisted members assigned to AAF units and bases had the Air Corps as their combat arm branch. While officially the air arm was the
Army Air Forces, the term
Air Corps persisted colloquially among the public as well as veteran airmen; in addition, the singular
Air Force often crept into popular and even official use, reflected by the designation
Air Force Combat Command in 1941–42. This misnomer was also used on official recruiting posters (see image above) and was important in promoting the idea of an "Air Force" as an independent service.
Jimmy Stewart, a
Hollywood movie star serving as an AAF pilot, used the terms "Air Corps" and "Air Forces" interchangeably in the narration of the 1942 recruiting short
"Winning Your Wings". The term "Air Force" also appeared prominently in
Frank Capra's 1945 War Department indoctrination film
"War Comes to America", of the famous iconic
"Why We Fight" series, as an animated map graphic of equal prominence to that of the Army and Navy. ==Expansion==