This arrangement lasted only until the War Department implemented the executive order on May 24 by issuing General Order No. 51 to coordinate the two independent agencies, with an eventual goal of creating a "Director of Air Service". (The term "Air Service" had been in use in France since June 13, 1917, to describe the function of aviation units attached to the American Expeditionary Force.) It delayed the appointment of a director as long as the BAP operated as a separate executive bureau. In August, the Senate completed its investigation of the Aircraft Board, and while it found no criminal culpability, it reported that massive waste and delay in production had occurred. As a result, the Director of Aircraft Production (who was also chairman of the Aircraft Board), John D. Ryan, was appointed to the vacant position of Second Assistant Secretary of War and designated as Director of Air Service, nominally in charge of the DMA. The Department of Justice report followed two months later and also blamed the delays on administrative and organizational deficiencies in the Aviation Section. Ryan's appointment came too late for any effective consolidation of both agencies, continuing an obstructive division of authority that was never resolved during the war.