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This experiment showed the way and encouraged fuller measures. During the battles of the Somme, which began on the 1st of July 1916, the Royal Flying Corps maintained a resolute and continuous offensive over the enemy lines. They suffered very heavy casualties, at a time when training and construction at home, which were in process of development, were unable to make good all the losses. Then the Admiralty, on the urgent appeal of the Army Council, agreed to detach from the Dunkirk command a complete squadron of eighteen fighting aeroplanes, under Squadron Commander G. M. Bromet, for temporary duty with the army. The squadron consisted of six two-seater Sopwiths, six single-seater Sopwiths, and six Nieuport scouts. They arrived at Vert Galand aerodrome, which is situated eleven miles north of Amiens on the Amiens-Doullens road, on the 16th of October 1916. After three weeks spent in machine-gun practice and flights to learn the country, the first full day's work was done on the 9th of November. There were many combats, and three enemy machines were driven down in a damaged condition. This squadron continued to operate with the army in France.

By the beginning of 1917 there were in France, working wholly with the army, thirty-eight Royal Flying Corps squadrons; that is to say, nineteen artillery squadrons and nineteen fighting squadrons; and the one fighting squadron belonging to the Royal Naval Air Service. It was anticipated that the Germans, who had appointed a single officer, General von Hoeppner, to take charge of all their military aircraft, and had produced several improved types of machine, would make a great effort in the spring of 1917 to recapture the air. To meet this effort more fighting squadrons were needed. The machinery at home for the reinforcement of the Royal Flying Corps was working at high pressure, and could not at once supply the need. So an appeal was once more addressed to the Admiralty, who agreed to provide four more fighting squadrons to be used on the western front. These squadrons made a punctual appearance, and during the earlier half of 1917 did magnificent work in helping to maintain the British supremacy in the air. Naval Squadron No. 3, for instance, under Squadron Commander R. H. Mulock, was at work on the western front from the beginning of February to the middle of June. During this time it accounted for eighty enemy aircraft with a loss of only nine machines missing, and provided highly respected escorts for photographic reconnaissances and bomb raids. From July 1917 onwards the naval squadrons, having bridged the gap, were gradually replaced by squadrons of the Royal Flying Corps, and were returned to Dunkirk.

The loan of these squadrons naturally diminished the force available for aerial operations under naval control, but the spirit in which the help was given is well expressed in a letter of Wing Captain C. L. Lambe, who was in command of the naval air forces at Dover and Dunkirk. Writing in August 1917 he points out the serious effects on the force under his command of the wastage of pilots, but concludes: 'I would remark however that the loan of these squadrons to the Royal Flying Corps must have been of the greatest value to the Empire, since the official record issued by the Royal Flying Corps states that up to August 3rd, 1917, a hundred and twenty-one enemy machines have been destroyed by naval squadrons, and two hundred and forty have been driven down out of control.'

When help was needed by the army, it was generously given by the navy, but the difficulties which inevitably present themselves when the attempt is made to secure the smooth and efficient collaboration of two separate forces cannot be solved by generous feeling. Most men are willing to help their country, but a country's revenue cannot be raised by free gift. Without justice and certainty there can be no efficiency, and for justice and certainty law and regulation are required. The chief administrative problem of the war in the air had its origin in the need for a large measure of co-operation between the military and naval air forces. The repeated attempts to solve this problem, the problem of unity of control, by the establishment of successive Air Boards, and the achieved solution of it by the amalgamation in 1918 of the two services under the control of an Air Ministry—these events took almost as long as the war to happen; indeed the story of them might truly be called the Constitutional History of the War in the Air. That story cannot be told here; it shall be told at a later point, in connexion with the foundation of the Royal Air Force. The method of government of the Royal Flying Corps has already been described; all that can fitly be attempted here is a brief account of the government of the Royal Naval Air Service, and the earlier vicissitudes of that government.

The union of the two wings of the Royal Flying Corps, that is to say, of the original Naval and Military Wings, was a one-sided and imperfect union, because the Royal Flying Corps, in its inception, was under the control of the War Office. The naval officers who joined the Naval Wing remained under the control of the Admiralty, and before the war the Admiralty had established an Air Department, with Captain Murray Sueter as its Director, to be responsible for the development of naval aeronautics. But the Director was less happily situated than his military counterpart, the Director-General of Military Aeronautics at the War Office, who, it will be remembered, dealt at first hand with the Secretary of State for War. The Naval Director of the Air Department had less power and less independence. From the time of Mr. Samuel Pepys, throughout the eighteenth century, and down to the year 1832, the navy had been administered by the office of the Lord High Admiral, assisted by a Navy Board, which was composed, for the most part, of civilian members of Parliament. In 1832 the Navy Board was abolished, and the modern Board of Admiralty was created to control the navy. The business of this Board was divided up among its various members. Finance fell to the Parliamentary Secretary; works, buildings, contracts, and dockyard business were the portion of the Civil Lords; while all kinds of service business, that is to say, preparation for war, distribution of the fleet, training, equipment, and the like, were assigned to one or other of the Sea Lords. When the Air Department was formed to take charge of the Naval Wing of the Royal Flying Corps, its Director was not only generally responsible to the Board of Admiralty, he was responsible to each of the Sea Lords in matters connected with that Sea Lord's department. This divided responsibility, which, by old custom, works well enough in a body with established traditions, like the navy, was not a good scheme for controlling the unprecedented duties, or for encouraging the unexampled activities, of an air force.

When the Naval Wing of the Royal Flying Corps was first established, in 1912, H.M.S. Hermes, under the command of Captain G. W. Vivian, was commissioned as its headquarters. During the following year naval air stations came into being at the Isle of Grain, at Calshot, Felixstowe, Yarmouth, and Cromarty, and in December 1913 the duties of the captain of the Hermes were taken over by Captain F. R. Scarlett, who was given the newly created post of Inspecting Captain of Aircraft, with headquarters at the Central Air Office, Sheerness. At the time of the outbreak of war the Royal Naval Air Service was administered by the Admiralty, and consisted of the Air Department at Whitehall, the Central Air Office at Sheerness, the Royal Naval Flying School at Eastchurch, the various naval air stations, and such aircraft as were available for naval purposes. The Sheerness office was under the Nore command, and the Inspecting Captain of Aircraft, who took his instructions from the Director of the Air Department, was also responsible to the Commander-in-Chief of the Home Fleets in all matters relating to aircraft operations with the main fleet.

The coming of the war soon multiplied air stations as well as aircraft; inland stations were established at Hendon, Chingford, Wormwood Scrubbs, and Roehampton; squadrons were dispatched abroad, and seaplane ships were commissioned; so that efficient control by the Nore command was no longer possible. In February 1915 the Admiralty decided that the whole of the Royal Naval Air Service should be forthwith placed under the orders of the Director of the Air Department, who was to be solely responsible to the Board of Admiralty. The Central Air Office was abolished, and Captain Scarlett was appointed to the staff of the Air Department to carry out inspection duties.

When this decision took effect in Admiralty Weekly Orders, certain points of difficulty were at once raised by the Commander-in-Chief of the Nore. 'Is the personnel of the air stations', he asked, 'to be subject to local Port Orders? I can hardly imagine that their Lordships intend otherwise. There are 77 officers and 530 men, including 94 naval ratings, in the three air establishments at present in my command (Eastchurch, Grain, and Kingsnorth), and it is understood that these numbers will shortly be increased by the personnel of three additional air stations (Clacton, Westgate, and Maidstone).' Further, he asked whether the Commander-in-Chief was to remain the controlling authority with regard to punishments; and he added, 'I strongly urge the re-establishment of some Central Air Authority in the port under my command with whom I can deal on defence and other important matters without reference to the individual air stations, which may often be commanded by officers of small naval experience to whom the naval aspect of the situation may not especially appeal.'

It was felt in the air service that owing to the technical nature of the work the question of punishments should not be relegated to any one outside the air service. The Commander-in-Chief of the Nore had invoked the King's Regulations, so the question was referred to the naval law branch of the Admiralty, which, in April 1915, replied that 'the discipline of the air service is governed entirely by the King's Regulations, which provide that the powers conferred upon commanding officers by the Naval Discipline Act shall be subject to the approval of a Flag officer whose flag is flying or the Senior Naval Officer.... As a matter of fact the Director of the Air Department has no disciplinary power under the Naval Discipline Act, and the reference of warrants to him would neither be in accordance with the King's Regulations nor the Naval Discipline Act.'

This verdict threw the organization of the Royal Naval Air Service once more into the melting-pot. The question of discipline was at the root of the whole matter. The navy were not willing to hand over the control of discipline to a body which, though it was called the Royal Naval Air Service, was much looser in discipline than the Royal Navy. The causes of this comparative laxity are easily intelligible. When the war came, the need for new pilots was pressing; the training accommodation at the Central Flying School and at Eastchurch was wholly inadequate; so the Admiralty had at once made arrangements for entering officers direct from civilian life, and for training them at civilian schools of aviation, such as the schools at Brooklands, Hendon, and Eastbourne. The important thing at the outbreak of war was to get officers who could fly a machine, and to get them quickly. Of professional training in naval knowledge and naval discipline there was perforce little. The spirit of adventure brought many youths at a very early age into the Naval Air Service; some of them were entered as commissioned officers, and were paid fourteen shillings a day at an age at which the regular sea service officer was being paid one shilling and ninepence a day, less threepence for the naval instructor. It is not to be wondered at that the high spirits of some of these untrained youths, and their festive behaviour, exposed them to the criticism of older officers who cared for the high traditions of the navy. The expansion of the Naval Air Service was too rapid to admit of that slow maturing process which makes a good sailor. When, at the end of May 1915, Mr. Winston Churchill vacated his appointment as First Lord of the Admiralty, he remarked on the rapid expansion of the service during his period of office. 'At the beginning of hostilities', he says, 'there were under a hundred officers and six hundred men. Most of these were transferred from the Navy proper, a small percentage only being civilians. At present there are over fifteen hundred officers and eleven thousand men.... We had at the beginning of the war a total of sixty-four aeroplanes and seaplanes. This of course represents a very minute proportion of our present numbers, of which all that I can publicly say is that they total more than one thousand.'

During the first winter of the war a short course in gunnery was arranged for young officers at the naval gunnery school at Whale Island, Portsmouth, where they were instructed also in drill, discipline, and the handling of men. This was a beginning, but it was not enough. The pioneers of the Naval Air Service had had an uphill task; they had worked untiringly in the cause of naval aeronautics, to achieve progress in the new art, and to get recognition for it from the Sea Lords. The recognition, when it came at last, was overwhelming. The navy claimed the Royal Naval Air Service as its own, and absorbed it into itself. The immediate motive for this was disciplinary, but the thing was a compliment, none the less, to the work of the air service. In the summer of 1915 the German submarine menace in the Channel became serious, and the officer in command of the Dover Patrol, who was responsible for the Straits, knew that for the work to be done from his bases at Dover and Dunkirk aircraft were essential.

In July the whole question was brought before the Board of Admiralty, and regulations for the reorganization of the Royal Naval Air Service were approved, to take effect on the 1st of August. These regulations are explicit and clear. 'The Royal Naval Air Service' (so they begin) 'is to be regarded in all respects as an integral part of the Royal Navy, and in future the various air stations will be under the general orders of the Commander-in-Chief or Senior Naval Officers in whose district they are situated.

'The Commander-in-Chief or Senior Naval Officer will visit the stations within his command or district from time to time, or depute a suitable officer to visit them on his behalf, to ensure that the discipline of the station is maintained.... Copies of reports on operations are to be forwarded direct to the Admiralty. It will be the duty of the Director of the Air Department to visit the various air stations from time to time ... with a view to ensuring that the technical training of the personnel is being carried out as laid down by their Lordships, and that the station is efficiently organized and equipped in respect to works and materiel.'

These are the main provisions of the new orders. The grouping of the air stations (which by this time were more than fifty in number) under the various commands was given in detail. The detachments stationed at Dunkirk and elsewhere in France and Belgium were put, for disciplinary purposes, under the orders of the Rear-Admiral, Dover. The inland stations at Hendon, Chingford, Wormwood Scrubbs, and Roehampton were put immediately under the Admiralty. Sweeping changes followed in appointments. The post of Director of the Air Department was abolished, and Commodore Murray Sueter was placed in charge of the construction section of the remodelled department. An officer of flag rank, Rear-Admiral C. L. Vaughan-Lee, was given the newly created post of Director of Air Services. A senior Naval Air Service officer, Wing Commander C. L. Lambe, R.N., who had been captain of the Hermes, was appointed to command the air patrols at Dover and Dunkirk, under the orders of Vice-Admiral R. H. Bacon. Other changes which followed were so numerous that in effect a new service was formed. When the Air Department was reorganized in the spring of 1916, it was divided into two sections—Administration and Construction. Each of these sections included a considerable diversity of business, which was classified, and placed under the separate control of eight responsible officers. Of these eight only two—Squadron Commander Clark Hall, who was responsible for aeroplane and seaplane design, and Squadron Commander W. Briggs, who was responsible for engines—were officers of the original Royal Naval Air Service. Most of the newly appointed administrative officers had no previous knowledge of aircraft or aircraft operations; what they were chosen for was their power of organization, their strict sense of discipline, their untiring energy, and their pride in the ancient service to which they belonged. The senior naval officer who was inexperienced in the air was promoted over the heads of the pioneers of naval aviation who were junior in the navy.

There is no unmixed good on earth. The debate between discipline and progress can never be settled dogmatically one way or the other. Those who have to lead men into battle are agreed that without discipline progress is useless. A crowd of undrilled men of science could not stand the push of a platoon of common soldiers. On the other hand, it is all-important that the higher command in war shall be susceptible to science, and it has been maintained, not without evidence, that the life of discipline and loyalty which procures promotion in a public service does not usually increase susceptibility to science.

The immediate practical advantages which were aimed at by the reorganizers of the Naval Air Service were attained. In place of the old scattered training stations a central training depot was set up at Cranwell in Lincolnshire, and a complete system for the instruction and graduation of pupils was instituted. A designs department was set up at Whitehall; the airship service was taken in hand and developed for anti-submarine patrol work. What may be called the most important unit of the Royal Naval Air Service was created by the amalgamation under Wing Commander Lambe of the squadrons which had their bases at Dunkirk and Dover. This unit, later in the war, became the famous Fifth Group, under the same command. The arrangements made at the time of change continued in force up to the time of the union of the military and naval air services, and progress was continuous. In January 1916 the Admiralty approved that the overseas establishment of the Royal Naval Air Service should have three wings, each wing to have two squadrons, and each squadron two flights, with six machines to a flight. One of these wings was based at Dunkirk; for the others two new aerodromes were established, in the spring of 1916, at Coudekerque and Petite Synthe, and were occupied, the first by No. 5 Wing, under Squadron Commander Spenser Grey, the other by No. 4 Wing, under Wing Commander C. L. Courtney, R.N. No. 5 Wing was specially trained for the work of long-distance bombing.

From the very beginning the Naval Air Service had set their heart on the fitting out of big bombing raids against distant German centres—Essen, or Berlin. It was a grief to them, when the war ended, that Berlin had suffered no damage from the air. The success of their early raids on Düsseldorf and Friedrichshafen naturally strengthened their desire to carry out more destructive raids over more important centres. In this way, they believed, they could best help the army. This idea inspired some of the documents drawn up by Mr. Winston Churchill while he was First Lord of the Admiralty. When in February 1916 Rear-Admiral Vaughan-Lee submitted to the Admiralty his scheme for the employment of the reorganized Royal Naval Air Service the same idea dominated his advices. 'I consider', his report concludes, 'that we should develop long-distance offensive work as much as possible.' The preference shown by the navy, in their orders from the makers, for powerful bomb-carrying machines tells the same story. When the navy set about carrying out this policy by the formation of a special force, called No. 3 Wing, at Luxeuil, for the express purpose of making long-distance raids over German munition centres, the army, which was preparing its great effort on the Somme front, and which needed more and yet more machines for the immediate purposes of the campaign, protested against the use of British aircraft for what seemed to them a luxury in comparison with their own dire needs. So the Luxeuil Wing was, for the time, broken up; but the idea took shape again later when the Independent Force came into being.

The sound doctrine on this matter is laid down in General Trenchard's reports, which shall be given hereafter. Yet it may be admitted, without prejudice to that doctrine, that if bombing raids had been possible over Essen and Berlin their effect would have been very great. The Germans spent not a little effort on their raids over London, and hoped for the weakening or shattering of the British war temper as a consequence of those raids. Their belief in frightfulness was a belief in fright. They judged others by themselves. No people on earth, it may readily be admitted, can maintain the efficiency of its war activities under the regular intensive bombing of its centres of population; but the Germans, during the greater part of the war, knew nothing of this fierce trial, and their trust in their army would have been terribly weakened if that army had proved to be no sure shield for the quiet and security of civil life.

Such differences as arose between the British naval and military authorities concerning the use of aircraft in the war were, for the reasons that have been given, not easily avoidable. They were ultimately composed by the union of the military and naval air forces under a single control, and the emergence of a new air force.

Wars have for many centuries been conducted on land and on sea. A third and larger theatre has now been found for them. The air flows over both land and sea; more than either land or sea it is the place of vision, and of speed and freedom of movement. What we of this generation are witnessing is a process whereby the air shall come into its own. It will become the great highway for the traffic of peace; and in war, which cannot be abolished while man has interests that are dearer to him than his own comfort and safety, the forces of the air will be, not a late-found timid auxiliary to the forces of the land and of the sea, but their overseer and their director.

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