By December 1943, the character of the air war in northern Australia had changed markedly, as the Japanese were no longer able to mount air raids against Darwin; rather than merely securing NWA, Cole was keen to adopt an offensive strategy in the Dutch East Indies. According to David Horner, "In the sense that he had to plan and conduct his own campaign, the AOC Northwestern Area was one of the RAAF's few operational level commanders, even if the campaign was somewhat static and limited". During March and April 1944, NWA controlled thirteen squadrons, including those of No. 79 Wing, and supported amphibious operations against Hollandia and Aitape. No. 61 Wing was ordered to build a runway at Darwin to accommodate USAAF B-29 Superfortress heavy bombers for operations against oil refineries in Balikpapan, but the deployment never went ahead.