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German aims and directives

From the outset of his rise to power, Adolf Hitler expressed admiration for Britain, and throughout the Battle period he sought neutrality or a peace treaty with Britain. In a secret conference on 23 May 1939, Hitler set out his rather contradictory strategy that an attack on Poland was essential and "will only be successful if the Western Powers keep out of it. If this is impossible, then it will be better to attack in the West and to settle Poland at the same time" with a surprise attack. "If Holland and Belgium are successfully occupied and held, and if France is also defeated, the fundamental conditions for a successful war against England will have been secured. England can then be blockaded from Western France at close quarters by the Air Force, while the Navy with its submarines extend the range of the blockade."

When war commenced, Hitler and the OKW (Oberkommando der Wehrmacht or "High Command of the Armed Forces") issued a series of directives ordering, planning and stating strategic objectives. "Directive No. 1 for the Conduct of the War", dated 31 August 1939, instructed the invasion of Poland on 1 September as planned. Potentially, Luftwaffe "operations against England" were to:

dislocate English imports, the armaments industry, and the transport of troops to France. Any favourable opportunity of an effective attack on concentrated units of the English Navy, particularly on battleships or aircraft carriers, will be exploited. The decision regarding attacks on London is reserved to me. Attacks on the English homeland are to be prepared, bearing in mind that inconclusive results with insufficient forces are to be avoided in all circumstances.

Both France and the UK declared war on Germany; on 9 October, Hitler's "Directive No. 6" planned the offensive to defeat these allies and "win as much territory as possible in the Netherlands, Belgium, and northern France to serve as a base for the successful prosecution of the air and sea war against England". On 29 November, OKW "Directive No. 9 – Instructions For Warfare Against The Economy Of The Enemy" stated that once this coastline had been secured, the Luftwaffe together with the Kriegsmarine (German Navy) was to blockade UK ports with sea mines. They were to attack shipping and warships and make air attacks on shore installations and industrial production. This directive remained in force in the first phase of the Battle of Britain. It was reinforced on 24 May during the Battle of France by "Directive No. 13", which authorised the Luftwaffe "to attack the English homeland in the fullest manner, as soon as sufficient forces are available. This attack will be opened by an annihilating reprisal for English attacks on the Ruhr Basin."

By the end of June 1940, Germany had defeated Britain's allies on the continent, and on 30 June the OKW Chief of Staff, Alfred Jodl, issued his review of options to increase pressure on Britain to agree to a negotiated peace. The first priority was to eliminate the RAF and gain air supremacy. Intensified air attacks against shipping and the economy could affect food supplies and civilian morale in the long term. Reprisal attacks of terror bombing had the potential to cause quicker capitulation, but the effect on morale was uncertain. On the same day, the Luftwaffe Commander-in-Chief, Hermann Göring issued his operational directive: to destroy the RAF, thus protecting German industry, and also to block overseas supplies to Britain. The German Supreme Command argued over the practicality of these options.

In "Directive No. 16 – On preparations for a landing operation against England" on 16 July, Hitler required readiness by mid-August for the possibility of an invasion he called Operation Sea Lion, unless the British agreed to negotiations. The Luftwaffe reported that it would be ready to launch its major attack early in August. The Kriegsmarine Commander-in-Chief, Grand Admiral Erich Raeder, continued to highlight the impracticality of these plans and said sea invasion could not take place before early 1941. Hitler now argued that Britain was holding out in hope of assistance from Russia, and the Soviet Union was to be invaded by mid 1941. Göring met his air fleet commanders, and on 24 July issued "Tasks and Goals" of firstly gaining air supremacy, secondly protecting invasion forces and attacking the Royal Navy's ships. Thirdly, they were to blockade imports, bombing harbours and stores of supplies.

Hitler's "Directive No. 17 – For the conduct of air and sea warfare against England" issued on 1 August attempted to keep all the options open. The Luftwaffe's Adlertag campaign was to start around 5 August, subject to weather, with the aim of gaining air superiority over southern England as a necessary precondition of invasion, to give credibility to the threat and give Hitler the option of ordering the invasion. The intention was to incapacitate the RAF so much that the UK would feel open to air attack, and would begin peace negotiations. It was also to isolate the UK and damage war production, beginning an effective blockade. Following severe Luftwaffe losses, Hitler agreed at a 14 September OKW conference that the air campaign was to intensify regardless of invasion plans. On 16 September, Göring gave the order for this change in strategy, to the first independent strategic bombing campaign.