Allied Air Power Doctrine: Royal Air Force War Manual; Volume I - Chapter 2: Policy and Plans

Policy

1. The strength of the air forces to be maintained in peace and mobilized for war is a matter of policy for which the Imperial Government, on the advice of the Air Council, is responsible.

2. As national policy is the supreme directing factor in war, so responsibility for the adoption, modification and revision of a war policy rests with the Government, upon whom rests responsibility in principle for the provision of the requisite means to carry their policy into effect.

3. The Committee of Imperial Defence, with the joint assistance of the Chiefs of Staff of the three services, is responsible to the Cabinet for the initiation of a con­sistent line of policy directing the common action of the three services. The Chief of the Air Staff has therefore an individual and collective responsibility for advising on defence policy as a whole, and also an individual re­sponsibility for advice on questions of air policy.

4. The Air Staff, under the Chief of the Air Staff, is charged with the preparation of plans for war, and of estimates of forces required for their execution against any combination of powers with which the Empire, allied with other powers or alone, may, in the opinion of the Imperial Government, be brought into conflict. The Air Staff is also responsible for the collection of intelligence concerning the air forces and resources of foreign powers.

Plans

5. In the preparation of plans, the first duty of the Air Staff is to appreciate the situation and, in consultation with the Staffs of the Navy and Army, to propose a course of action within the capabilities of the forces likely to be available which will most rapidly and economically achieve the desired result.

6. When the Government has approved a course of action, a plan of campaign based upon it will be prepared. Normally, all the resources at the disposal of the Govern­ment will be directed towards the overthrow of the enemy ; the means by which it is intended to do so will be stated, and the roles allotted to each of the services engaged will be clearly defined.

7. If a decision is to be sought by the rapid defeat of the hostile army in the field, air power should be used in such a way as may best ensure success in the land battle. But where a decisive result is not immediately to be looked for, it may become necessary to rely upon the methods designed to sap the morale of the nation as a whole such as economic blockade. In such a case, the use of air power should be directed accordingly.

8. The preparation of plans require not only a detailed knowledge of the relative strengths, armament, training and morale of the opposing forces and the physical and climatic characteristics of the theatre of operations, but also a careful study of the psychology of the enemy people, their national characteristics, resources, means of existence, method of life and economic organization.

Declaration of War

9. A state of war is declared by Royal Proclamation.

10. In case of imminent national danger or of great emergency, either before or after a declaration of war, proclamations will be issued for the embodiment of such portions of the forces as may be required. Proclamations will also be issued if necessary, de-limiting the territory to be placed under martial law.

11. Such Orders in Council as the situation may warrant will be issued for the requisitioning of transport and control of railway traffic.

12. In the event of an overt act of war being com­mitted by a foreign power against any part of His Majesty's Dominions, previous to a declaration of war, it is the duty of the senior commander on the spot to take such action for the defence of his command and in the national interest, as the situation may require, and to report the action taken without delay to superior authority.

Execution of Plan of Campaign

13. Responsibility for the execution of the approved plan of campaign lies with the Commander-in-Chief subject to such orders as he may from time to time receive from the Government.

14 As soon as the Air Officer Commanding the Air Forces engaged is appointed, he will be furnished by the Chief of the Air Staff with instructions, which will include a clear statement of the aim to be attained by the air forces and of any limitation which it is necessary to impose on their free employment. He will also be furnished with the Air Staff appreciation of the situa­tion, the approved plan of campaign, and with detailed information on all points which may be of use to him, such as :

(i) The forces to be placed at his disposal and their state of mobilization.

(ii) The armed forces of allied and hostile powers with their special characteristics.

(iii) The national characteristics, resources and means of existence of the enemy people.

(iv)Suitable objectives for air attack, their  position, relative importance and state of their defences.