On 17 August 1917, South African General Jan Smuts presented a report to the War Council on the future of air power. Because of its potential for the 'devastation of enemy lands and the destruction of industrial and populous centres on a vast scale', he recommended a new air service be formed that would be on a level with the Army and Royal Navy. The formation of the new service would also make the under-used men and machines of the Royal Naval Air Service (RNAS) available for action on the Western Front and end the inter-service rivalries that at times had adversely affected aircraft procurement. On 1 April 1918, the RFC and the RNAS were amalgamated to form a new service, the Royal Air Force (RAF), under the control of the new Air Ministry. After starting in 1914 with some 2,073 personnel, by the start of 1919 the RAF had 4,000 combat aircraft and 114,000 personnel in some 150 squadrons.