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Ground based naval bombers have a hidden damage penalty so you need about 300 to 400 in an airzone to be able to consistently sink ships (with obvious factors like radar and air efficiency aside), carrier based ones don't seem to be affected.
And if you think that's unfair, it would be a bit much if it took just one airwing of them to sink the entire British and American navy.
You can make around 400 Ground-based Naval Bombers with nigh infinite range for every around 100 CV Naval Bombers as you have to also make a Carrier for them to actually bring them with. It would be unfair.
If Ground-based Naval Bombers could deal as much damage as CV Naval Bombers, there would be 0 reason to ever not only make an actual Navy, but also bother with CV planes of any kind. You can stack range modifiers on your Medium Planes to the point where they can basically act as Strat Bombers, covering any and all zone you want.
The losses also would be utterly irrelevant, no amount of AA from ships would be able to trade against that. The IC inefficiency of making ships vs Ground Naval Bombers just straight up wouldn't make up for it.
As Germany, you'd just need around 400ish Medium Navy Bombers and you'd be able to sink the entirety of the Royal Navy in less than a month. As the US, you'd be able to sink the entire IJN in even less than that.
IMO, a good fix for this would be:
-) strongly limit the amount of Naval Bombers that can attack a single enemy ship (so you don't get absurd stuff like 500 Naval Bombers attacking a tiny task force of 10 ships).
-) separate Naval Bombers and Anti-submarine Warfare aircraft. Naval Bombers are INSANELY strong against submarines, even more so than against surface ships. Having a separate ASW plane model with Depth Charges instead of Naval Torpedoes (Torpedoes wouldn't be able to hit a submarine anyways, AFAIK), would be a great change. And reduce the potency of those aerial depth charges massively, of course.
Which quite honestly, you are FAR better off using carriers to bomb navy ships.
Now the real irony is the AI is stupid enough to use CAS and tactical bombers to attack your ships, which already have pathetic naval damage because they dont have torpedoes.
The only land based naval bombers to have is the large frame Naval patrol Bombers to ONLY spot ships and are limited to wings of 10, other than that they are kind of a waste of manpower and resources.
Quite a bit also has to do with the the game code as well, which can be seen on the HOI wiki. Some of the air damage you take is based upon the number of planes you have which is why some of the losses are insanely high with land based wings. You also want to avoid naval bombing from land if area that have enemy islands with AA guns, as they get to fire twice (once for the daily damage and again when you start the naval attack.)
lol