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Page 5.

The efficient protection against the enemy using aircraft for such "interior" destruction is a function that does not properly apply to either the army or the navy air forces, and is one that, except under the most unusual circumstances, they cannot be expected to perform without grave detriment to their own particular duties. Likewise, the employment of aircraft for injuring the enemy at "home" is, or should be, a distinct and separate function, independent ( to a great extent at least) of the conditions and actions controlling the employment of the army and navy proper. 
The utilization of such a weapon of defense and offense is, at the present time, so important and is becoming more and more so that adequate preparations must be made by this country as a vital means of defense. Suitable and adequate preparation of this weapon, and of the personnel required to man, manufacture, and supply same cannot be furnished either by the army or navy, nor by the two forces combined. In order that is can be developed to the point where it will represent a real safeguard, it is necessary that an organization be formed whose main functions are the employment of aircraft in all its  varied fields of action, military, naval, and commercial. 
The importance of this function of the government is so great and the interested industries are so large in number, and the