How the Bolling Mission Helped Create an American Air Force

Raynal Bolling, Corporate Lawyer

Air-mindedness [in the United States after the Wright Brothers' first flight] owed much to civic organizations, especially the Aero Club of America, founded in 1905, which drew its leadership from the captains of industry. The Aero Club was actually a federation of aviation clubs from across America that sponsored flying exhibitions, issued pilot’s licenses, and promoted a nascent aviation industry. Promoters of aviation envisioned growth of an aircraft industry as revolutionary as the automobile industry, which was then transforming American society. The Aero Club was a powerful lobby and had been largely responsible for legislation establishing the Aviation Section of the Signal Corps in 1914. The club also lobbied for the establishment of aviation units in the National Guard. Bolling organized one of these units in New York.

A Harvard-educated lawyer and an aviation enthusiast, Arkansas-born Raynal Bolling (1877–1918) served on several of the Aero Club’s executive committees, including those dealing with law, government affairs, and military aviation. He would become one of the key architects of American airpower. Many readers will recognize Bolling as the name of the USAF base near the Pentagon in Washington, DC. Bolling merited this honor for his role in creating American airpower during the Great War. He was also the senior U.S. Airman killed in action during the war. His part in the birth of American airpower exemplifies how the National Guard and reserves played an important role in the formation of an American air force—the prologue to today’s total force.

Bolling initially rose to fame as the chief lawyer for US Steel. At that time, it was the largest corporation in America and vitally important to any war effort. He helped defend US Steel from being broken up by President Theodore Roosevelt, “Teddy the Trust Buster.” He was also a member of the New York National Guard. “The Guard was a hotbed of early interest in aviation, and there were many efforts to form Guard aero units in various states, the most prominent being the New York.” Bolling’s interest in aviation, combined with financial support from the Aero Club of America, led to his founding of the 1st Aero Company of the New York National Guard in 1915.

Raynal Bolling, Aviator

Bolling’s command expanded to become the 1st Reserve Aero Squadron (1st RAS) after the passage of the National Defense Act of 1916, which originated the nation’s air reserve. His squadron was among the first aviation units sent to France in the summer of 1917. It was the core organization that built and expanded into a huge American aviation training center at Issoudun, France. Bolling’s second-in-command, Capt James Miller, took charge of the squadron after Bolling left and became the first commander at Issoudun. Another member of this squadron was 1st Lt Quentin Roosevelt, the youngest son of President Roosevelt. Captain Miller and Lieutenant Roosevelt later became pilots in the 1st Pursuit Group (1st PG), the ancestor of today’s 1st Fighter Wing. Both men were killed in air-to-air combat with the Germans.

Bolling did not accompany his squadron to France because he was called to Washington to help plan the creation of a wartime air force. His aviation expertise, contacts with industry, and knowledge of the law made him an especially valuable asset in crafting legislation to create American airpower. He and Foulois drafted the bill that became the $640 million appropriation. Foulois had also only recently come to Washington. He was one of the most experienced aviators in the regular Army.

After the passage of the historic aviation bill, Foulois and Bolling focused on the next major problem—how to translate the huge appropriation into a practical plan to man, train, organize, and equip an American air force. The United States was unprepared for war, and a strict policy of neutrality had minimized contact with the European allies. An air force needed modern combat aircraft, well-trained pilots, mechanics and support personnel, and a host of other items to create combat-ready squadrons. Bolling was sent to Europe to figure out what types of airplanes America should build.

The Bolling Mission Visiting the Italian Front

The “Bolling Mission”

Bolling led a group of officers, technicians, and other experts (more than 100 personnel) on what became known as the “Bolling Mission” to Europe to determine what types of airplanes the United States should manufacture. They met with aviation officials in Britain, France, and Italy. As a result of these meetings, Bolling realized that American aviation technology was so far behind that it would be necessary, at least initially, to rely upon the European Allies for airplanes. At this point in aviation history, the airplane reflected an immature technology, and unlike today, improvements were inexpensive and rapid. Also, the proximity of European aircraft designers and their factories to the battle area gave them a distinct advantage in turning out improved models based on combat experience.

As it turned out, American industry had so much difficulty producing acceptable warplanes that most of the AEF’s airplanes came from foreign sources. It was a scandalous failure for the nascent American aircraft industry, especially given the huge aviation bill passed by Congress. This disgrace resulted in a series of congressional investigations after the war. Accordingly, it is no surprise that France, which had the largest aviation industry in the world, supplied 80 percent of the AEF’s airplanes.

Bolling’s aircraft purchases were of great consequence. As one historian noted, “The Bolling Commission actually played one of the most important roles in the war.” This is because the numbers and types of aircraft that he recommended for production in the United States, as well as those purchased from the Allies, would shape the air strategy in terms of the weight of effort for air superiority, observation, and bombardment. The contract he negotiated with the French, known as the 30 August Agreement, in 1917, called for 875 training planes and 5,000 service-type aircraft. Since the war would be over in a little more than 14 months, these early decisions had significant impact. In the event, however, French manufacturers were unable to deliver on time, resulting in aircraft purchases from Britain and Italy.

General Pershing was so impressed with Bolling that he retained him in France, promoted him to colonel, and appointed him as chief of the Air Service’s line of communications. In addition to aircraft procurement, Bolling was responsible for logistics, reception of aviation units, and pilot training. The other main part of the Air Service was called the Zone Advance, where the training and organization centers were located. Col William “Billy” Mitchell was in charge of it.

USAF Headquarters Bears Raynal Bolling's Name

Benjamin Foulois, who had been organizing the Air Service and its facilities back in the States, arrived in France in November 1917 and reassigned both Bolling and Mitchell, effectively demoting them and replacing them with his own handpicked officers. The move would prove a major setback for the U.S. Air Service.

Foulois appointed Bolling as a liaison officer to the Royal Air Force. Bolling became the senior airman killed in the war when his car was ambushed by a German patrol while he was attempting to visit elements of two American aero squadrons that were attached to the British. The Germans had just launched their long-anticipated spring offensive, and the front line had dissolved in that sector.  His body, however, was never recovered.  

Bolling was the most knowledgeable officer on aircraft procurement. His loss contributed to the unhinging of the Foulois regime, but that's another story to be told elsewhere. Colonel Raynal Bolling was posthumously awarded the Distinguished Service Medal. His citation reads (in part): 

Colonel Bolling's service to the United States Aviation was distinguished for an accurate and comprehensive grasp of aviation matters; for a sound and far-sighted conception of the measures needed to establish an efficient American Air Service in Europe; for initiative and resourcefulness in attacking the problems of a young Air Service; for brilliant capacity in arranging affairs with foreign governments, for boldness and vigor in executing determined policies.

He is remembered on the wall of the missing at the Somme American Cemetery, Bony, France. Bolling Field, District of Columbia, now a part of Joint Base Anacostia-Bolling, was opened on 1 July 1918, and named to commemorate Bolling. Bolling Air Force Base has served as USAF Headquarters since 1947.

Source: Excerpted from "The Birth of American Airpower in World War I," by Dr. Bert Frandsen, Air University, 2017