On 13 April 1912, less than two weeks after the creation of the Royal Flying Corps (which initially consisted of both a naval and a military wing), an Air Committee was established to act as an intermediary between the Admiralty and the War Office in matters relating to aviation. The new Air Committee was composed of representatives of the two war ministries, and although it could make recommendations, it lacked executive authority. The recommendations of the Air Committee had to be ratified by the Admiralty Board and the Imperial General Staff and, in consequence, the Committee was not particularly effective. The increasing separation of army and naval aviation from 1912 to 1914 only exacerbated the Air Committee's ineffectiveness and the Committee did not meet after the outbreak of the First World War.
By 1916 the lack of co-ordination of the Army's Royal Flying Corps and the Navy's Royal Naval Air Service had led to serious problems, not only in the procurement of aircraft engines, but also in the air defence of Great Britain. It was the supply problems to which an attempt at rectification was first made. The War Committee meeting on 15 February 1916 decided immediately to establish a standing joint naval and military committee to co-ordinate both the design and the supply of materiel for the two air services. This committee was titled the Joint War Air Committee, and its chairman was Lord Derby. It was also at the meeting on 15 February that Curzon proposed the creation of an Air Ministry. As with the pre-war Air Committee, the Joint War Air Committee lacked any executive powers and therefore was not effective. After only eight sittings, Lord Derby resigned from the Committee, stating that "It appears to me quite impossible to bring the two wings closer together ... unless and until the whole system of the Air Service is changed and they are amalgamated into one service."
The Joint War Air Committee was composed as follows:
Advisory Members were also appointed as required.
The next attempt to establish effective co-ordination between the two air services was the creation of an Air Board. The first Air Board came into being on 15 May 1916 with Lord Curzon as its chairman. The inclusion of Curzon, a Cabinet Minister, and other political figures was intended to give the Air Board greater status than the Joint War Air Committee. In October 1916 the Air Board published its first report which was highly critical of the arrangements within the British air services. The report noted that although the Army authorities were ready and willing to provide information and take part in meetings, the Navy were often absent from Board meetings and frequently refused to provide information on naval aviation.