[Mark W. Tonner]

Since Karmen does not have access to the following on the internet, I'm posting this information here and for those others whom may not know where to find it.

I've spread it over five posts.

Army Headquarters Report No. 15 - dated: May 1 1947 - Part I

The Canadian Women's Army Corps, 1941-1946

Introduction:

The Canadian Women's Army Corps, the first official military organization of Canadian women, was authorized on 13 Aug 41 by Order in Council P.C. 6289. Although in fact an entirely new organization, the idea that women should serve in time of war was by no means new. Down through the centuries women, historical or mythical, had participated in wars. During the war of 1914-18 women's services had been formed in Great Britain, and women of various organizations had been employed by the Canadian Government. Prior to and during the first years of the War of 1939-45, because of the lack of any declared years of the War of 1939-45, because of the lack of any declared policy on the part of the Canadian Government regarding the military employment of Canadian women, many selfdesignated unofficial corps sprang up, constituting a problem of serious proportions. Partly because it was necessary to deal in some way with the many offers of service from these corps and from individuals and partly because of an impending shortage of manpower, planning was commenced for the formation, on a military basis and under military control, of a Corps of women who might be employed and moved as the circumstances of war dictated. The result was the Canadian Women's Army Corps.

Employment of Women with the Canadian Forces 1914 - 1918:

2. During the War of 1914-18, women were employed in various capacities with the Canadian Army. Briefly, the women employed and paid by the Canadian Government consisted of:

In Great Britain:

(a) Women Drivers with M.T. Companies, C.A.S.C, engaged directly by the Canadian authorities.

(b) Personnel of the Women's Legion; Women's Army Auxiliary Corps (Queen Mary' Army Auxiliary Corps)

(c) Female clerks and stenographers - carried on strength and establishment of administrative offices.

(d) Canadian Field Comforts Commission; Canadian War Contingents Association; St. John Ambulances Brigade, and Voluntary Aid Detachments.

(e) Girl Guides - employed in administrative offices.

In France:

(a) Queen Alexandra's Imperial Military Nursing Service, and the First Aid Nursing Yeomanry.

(b) Civilians - Engaged as Batwomen to Canadian Nursing Sisters, and Laundresses employed at Divisional Baths.

In Canada:

(a) The Women's Aid Department - in connection with the C.A.M.C. in Military Hospitals.

Associated with Canadian forces and taking an active part in the war were many unofficial women's organizations, such as the Winnipeg Women's Volunteer Reserve (1915-1918) and the Canadian Women's Emergency Corps No 1 (Montreal) (1915-1918). The women employed with the Royal Air Force Training establishments in Canada were engaged in Canada by the British authorities.

3. In addition, further efforts were made to substitute women for men in certain types of work in France, England and Canada. While these attempts do not appear to have been successful, it is interesting to note that the first proposals to form a Corps of Canadian women were made over two decades before such a Corps actually existed. (On 30 May 18 the Militia Council discussed the formation in Canada of an organization similar to the 'Women's Army Auxiliary Corps, Imperial Army. The question was referred to a Sub-Committee consisting of the Quartermaster-General, the Paymaster-General, the Judge Advocate General and a representative of the Adjutant-General's Branch. The report of the Sub-Committee, presented at a Militia Council meeting on 11 Sep 18, read in part as follows:

...This Sub-Committee recommends as follows:-

(a) That a Corps be organized to be known as "The Canadian Women's Corps" to embrace the following:-

"A" Ordinary clerical work, typists, accountants, and librarians. - Shorthand typists. - Forewomen (clerks).

"B" Cooks, waitresses, housemaids, maids and laundresses.

"C" Qualified driver mechanics.

"D" Storehouse women, packers, issuers, messengers, sewers, general unskilled labour.

"E" Telephone and Postal Services.

(b) That before action be taken in regard to the organization of all the above sections, the same be confined for the present to section "A".

4. The Sub-Committee stated that the "Heads of Branches and Military Districts" had been circularized to ascertain the number of women clerks then employed and the nature of their duties; the number of men performing similar duties; and the number of men who might be replaced by women and the types of employment. The results of this investigation showed 1,325 women and 1,401 men, of whom 107 could be replaced by women, employed as clerks. The report concluded: The Committee recommends that the women now employed whose services are satisfactory (other than members of the Permanent Civil Service) be given an opportunity to enlist in the Corps and if they do not desire to do so, they be replaced by the Corps as opportunity arises, and that new appointees be drawn from the Corps. At a meeting of the Militia Council held seven days later, the following decision was recorded: The principle of the formation of a Canadian Women's Army Auxiliary Corps was approved, and the Honourable the Minister stated that he would take this question up with the Right Hon. the Prime Minister, and would also discuss it with the Honourable Dr. Roche, the Chairman of the Civil Service Commission. This decision was confirmed on 25 Sep 18, but "there is no further record of any action being taken"

Canadian Women's Organizations Preceding C.W.A.C.:

5. In Canada a number of unofficial, voluntary self-designated corps formed prior to and during the first years of the war of 1939-45. The first of these made its appearance in Victoria, B.C., on 5 Oct 38, shortly after the Munich conference. Its organization was based on that of the A.T.S. Night classes in military clerical duties, motor mechanics and first aid were held, and personnel served when necessary as volunteer clerks and drivers for M.D. 11 Headquarters . Later 13 other corps organized in British Columbia, and all united under Mrs Norman Kennedy (later Lt-Col Joan B. Kennedy) to form the British Columbia Women's Service Corps. Among other corps formed to enrol women for Voluntary duties were the Canadian Red Cross Corps, the Women's Transport Service Corps, the Alberta Women's Service Corps, the Canadian Auxiliary Territorial Service of Ontario, the Women's Voluntary Reserve Corps of Montreal and Quebec, the Saskatchewan Auxiliary Territorials, the Nova Scotia Women's Service Corps, the British Columbia Women's Ambulance Corps, and A.R.P. organizations.

6. Many of these corps sought official recognition and status similar to that obtained by organizations in Great Britain. No recognition was forthcoming, however, because owing to the jealous claims which will be undoubtedly put forward by these organizations if given recognition it was impossible to utilize these Corps' as such, either in whole or in part . In addition, recognition of any corps would at once commit the Department not only to wholesale recognition of existing organizations, but many others which would spring into being. In some cases there was no military necessity for employing women in the duties for which the various corps trained. Finally, when it was decided that the enrolment of women as part of the Militia was desirable, the whole matter would have to be carefully reviewed so that the organization is sound, balanced for present needs and elastic enough for expansion. It was considered that the establishment of an entirely new Corps with open recruiting would be the only satisfactory solution.

7. On 12 Jul 40, the British Columbia Women's Service Corps had inquired of the War Office whether Canadian women would be accepted as recruits for the A.T.S. A reply was received stating that recruits were needed, and personnel having the necessary qualifications would be accepted but would have to provide their own transportation. It was pointed out, however, that such action was impossible, since by Order in Council P.C. 2371 of 4 Jun 40, women, unless in the Armed Forces or Public Services of Canada, were forbidden to leave Canada with the intention of "entering the War Zone surrounding the British Isles or in European waters".

Proposals for Canadian Women's Army Service:

8. Meanwhile, at N.D.H.Q., an official women's Corps had been under discussion "for some time". On 29 Jul 40 a draft memorandum prepared by D. Org suggested that a "Women's Section, C.M.S.C. might be formed. It was pointed out that suitable male clerks would become increasingly difficult to obtain as the war progressed, and that women might be employed to carry out routine clerical work under normal conditions. The advantages of employing women with military status instead of civil servants were that they would be selected and controlled by the Department of National Defence instead of by the Civil Service; that they might be moved from one station to another; that they would be available for duty at any time; that they would "take on a Military viewpoint" which was expected to improve the standard of their work; and that, as part of the Armed Forces, it would enable women "to exhibit and realize their part in the war effort". It was considered that the disadvantages would be the cost of clothing, medical and dental services, and necessity of providing special accommodation for the new corps. In the event of women being employed as orderlies, cooks, canteen and Auxiliary Service helpers, it was suggested that the proposed new section of C.M.S.C. might "form part of and come under control of, say, the 'Auxiliary Militia Services Corps'.

9. Regulations and instructions governing British Women's Services, and in particular the A.T.S., were obtained from the War Office and studied to form a basis for a Canadian women's corps. On 26 Aug 40 a memorandum from the A.G. to the C.G.S., Q.M.G. and M.G.O. summarized the case for the enlistment of women in the Canadian Army, and outlined proposed conditions of service. He suggested that the new corps might be known as the "Canadian Auxiliary Militia Service". It was planned to replace temporary civil servants, who would be given first chance to enroll, by members of the women's corps, and to provide rates of pay which would approximate those of the Civil Service. The A.G. proposed that a commandant selected to administer the Corps should be a member of the Nursing Service, R.C.A.M.C., because of her military knowledge. At a meeting of the Military Members of the Defence Council, held on 3 Sep 40, the military employment of women in the C.A.S.F. was discussed and concurred in in principle.

10. Maj-Gen D.W. Browne, then the A.G., suggested to the Minister in a memorandum of 4 Sep 40 that the new corps be raised by open recruiting, and not by "unit" representation from the numerous unofficial organizations. On 6 Sep 40 a D. Org memorandum noted that "clerks and cooks are definitely needed now and Civil Servants will not be suitable". The M.G.O. had stated previously that uniforms could not be made available for some months, and in view of this an immediate decision concerning the formation of a women's corps was considered necessary, in order that all preparations might be made well in advance of the actual formation. The best course of action seemed to be "to do nothing until arrangements are complete to launch the whole Corps, and until that time, the matter to be kept "Secret". It was recommended that some public statement should be made concerning the status of unofficial dorps, with particular emphasis on the fact that none of these had received any kind of official recognition. "As a possible outlet for the various women's organizations", it was thought that, until a Canadian women's corps was formed, "facilities might be given for them to serve in the A.T.S. and that arrangements might be made with the War Office to this end. It appears that some such decision was taken and the Women's Mechanized Transport Corps, and later the Women's Transport Service, were allowed to recruit personnel in Canada for service in the U.K. on condition that recruits were medically examined and investigated in Canada to avoid rejection on arrival overseas. No official participation by the Canadian Government was involved.

11. All D.Os.C. and all Branches and Directorates at N.D.H.Q. were circularized on 1 Oct 40 to ascertain general views on the employment of women to release soldiers for active duty, and the number of women needed. The replies were for the most part in favour of the project. Generally, the chief difficulties appeared to be the question of quarters and discipline, but, while it was appreciated that "there may be a good deal of trouble and inconvenience at the commencement it is not felt that these difficulties are insurmountable". The opinion of the D.O.C. M.D. 6 was that "the success or failure" of the proposed women's corps "would...entirely depend upon very careful organization".

12. On 5 Nov 40 D. Org again summarized the situation in the light of remarks and suggestions made by the various offices concerned. It was reiterated that the two main problems were the employment of women as military personnel, and the question of official recognition of the voluntary unauthorized corps. It was considered that if the unofficial corps were given encouragement a regular women's corps would have to be provided to which they could contribute recruits. The disadvantages of employing civil servants in Army Offices during war were listed as follows:

(a) The salaries paid by the Civil Service in the junior grades are not sufficient inducement to obtain the type of clerk required.

(b) The average girl takes up temporary Civil Service employment as a "job", and has no particular interest in the Army, further she has little choice of the department of the Government in which she shall work.

(c) If a Civil Servant is inefficient or unsuitable, it is not easy to dispense with her services or have her transferred elsewhere.

(d) There is no machinery whereby a Civil Servant in the interests of the Service can be moved from one station to another.

13. On the other hand, if women were enrolled as part of the C.A.S.F., it was considered that:

(a) They can replace soldiers in the higher clerical type of work as well as in the purely routine work.

(b) Having elected to serve in the Forces and being in uniform, they will definitely be interested in Military work.

(c) Promotion, transfer and discharge being under Military control will lead to added efficiency.

(d) A women usually makes a better clerk than a man, she is quicker and if efficient far more adaptable.

(e) Putting women into uniform will, it is thought, be popular not only amongst women but also with the general public.

(f) As women replace men costs will be lowered as their pay and allowances will be less than men.

(g) There will be better control as regards office hours, leave, discipline, etc...

14. It was recommended that the women's corps should develop gradually, in the following three general stages:

(a) ... the conversion of Civil Servants at present employed into military personnel.

(b) ... the filling of vacancies in the C.M.S.C. and other departmental corps and establishments by women up to a definite establishment.

(c) ... the replacement of soldiers by women for employment as cooks, officers' mess waitresses, dry canteen helpers, light M.T. vehicle drivers, etc...

It was not intended to enroll married women. While recruiting would be open to everyone, it was thought that recognized women's volunteer corps should be given an opportunity to recommend recruits, and in this way it would be possible to obtain women who had received some military training and could be "definitely recommended as desirable". It was pointed out also that the cost of uniform and personal equipment would be considerably less than that of a soldier, since no arms or fighting equipment were required. The employment of women as military personnel overseas was also considered possible.

15. Suggested "Regulations and Instructions for the Canadian Women's Service" began to be drafted in the latter part of 1940. According to a draft prepared in February 1941, the Canadian Women's Service, which was to be considered as supplementary to, but not part of, the Canadian Army, was to comprise two divisions, i.e. a Canadian Women's (Army) Service for permanent duty with the Army, and a Canadian Women's (Reserve) Service for duty in an emergency and a source of reinforcements for the CW.(A)S. Conditions of service for the C.W.(R.)S. were to be, as far as possible, the same as those for the C.W.(A)S. In addition to providing recruits for the C.W.(A)S., members of the C.W.(R)S. might be employed by D.Os.C. on authority form N.D.H.Q. for temporary duty. It was recommended that any training which took place should aim at preparing personnel for employment as typists, stenographers, clerks, cooks, waitresses, telephone and radio operators, drivers and mechanics, store-keepers, book-keepers, accountants, messengers, social workers, dental assistants, and A.R.P. personnel. It was suggested that an annual grant of one dollar per annum be paid to the C.W.(R)S. units not permanently employed for each member who had three months' efficient service.

16. A memorandum from the A.G. to the Minister of National Defence on 14 Feb 41, discussing the employment of women as auxiliaries to the Canadian forces, stated:

1. While with the exception of tradesmen there is at the moment no shortage of manpower in the Army, the time will soon arrive when it will be necessary to utilize the services of women in certain employment in order to replace soldiers to a much greater extent than at present.

2. A large number of women have been obtained from the Civil Service for employment as additional clerical assistance in a junior-capacity at N.D.H.Q. and at District Headquarters. It is, however, not feasible to extend the employment of women for other tasks nor even in the case of clerks to use them at Training Centres and other establishments either in Canada or Overseas without such women coming under Military Control.

3. In order, therefore, to regularize the whole position, it is proposed to organize the CANADIAN WOMEN'S (ARMY) SERVICE...

4. The activities of the C.W.(A)S. will be confined to N.D.H.Q., District and Command Headquarters, Training Centres, Hospitals and similar static Establishments in Canada and possibly at a later date if the situation so demands, the units of the C.W.(A)S. will be employed Overseas.

5. There exist throughout the Dominion a number of Women's Organizations which have, during the past year, been raised entirely without official recognition. The object of these organizations is to volunteer services in any capacity for H.M. Forces. The circumstances under which these organizations have sprung up, however, makes it impossible to accept their services direct for Army employment. It is therefore proposed that these organizations under the name of the CANADIAN WOMEN'S (RESERVE) SERVICE be given official recognition in order that they may, with authority, be employed in Canada in time of emergency and to be the means whereby recruits for the Canadian Women's (Army) Service will be obtained. In the event of it being found desirable to create a Canadian Women's (Naval) Service or a Canadian Women's (Air Force) Service, no doubt it would be convenient to use the C.W.R.S. as a means of recruiting.

6. On organization, Civil Servants at present employed under the Department may be enrolled in the C.W.A.S. if they so desire, but thereafter all recruits will be obtained from the C.W.R.S.

7. It is estimated that during the next 12 months 1500 women will be required. The development of the Service will be gradual, but it is essential that for reasons of organization and equipment, a start be made immediately.

8. Recognition of the various Women's Organizations in Canada as part of the CANADIAN WOMEN'S (RESERVE) SERVICE will be on the recommendation of the District Officer Commanding concerned. Before making his recommendation, the D.O.C. will satisfy himself that the organization is financially stable and otherwise acceptable. Any organizations which already have adopted a uniform acceptable to the Department will be permitted to continue to wear it, but new organizations or existing ones not having a uniform and desiring to wear uniform will, if they wish to be supplementary to the Army, conform to that laid down for the C.W.(A)S...Besides finding reinforcements for the C.W.(A)S. or other services, they will undertake the obligation for duty in Canada in an emergency. They will also be called upon to find personnel, if required, for temporary duty. The bearing of or training in the use of arms will not be allowed.

The J.A.G. pointed out, however, that if the Women's Organizations were recognized and given the status of reserve units the result would be a great deal of organizational work and a large administrative and supervisory staff.

17. On 22 Mar 41 the A.G. suggested to the Minister that National War Services take over the organization of the proposed women's corps, and added that "the Army is prepared to abandon its proposal to organize the existing Organizations as Active and Reserve Units and will make demands on National War Services for women, required for Army work". In addition to personnel in the traces required by the Army, it was suggested that personnel for work in war plants, in a Land Army, and in First Aid and Home Nursing might be enrolled.

18. The Department of National War Services had already had some discussion concerning women's organizations. On 31 Oct 40 Her Royal Highness the Princess Alice had called in a number of representatives of the unofficial corps to discuss possible coordination of activities of women and women's organizations in Canada. As a result a committee consisting of Senator Wilson, Senator Fallis and the President of the National Council of Women was set up. After the situation had been canvassed, Princess Alice called a second meeting, at which it was proposed to form "The Women's Voluntary Services of Canada" enlisting and instructing women in trades which would be useful to the war effort. From these, personnel could be supplied for various wartime jobs. This appeared to be an organization similar to that which the Department of National Defence visualized (para 17 above). The women were to be paid by
the Department employing them, and the Department of National Defence was to supply uniforms where necessary.

19. On 2 Apr the question of the employment of women in the Defence Forces was discussed by representatives of the Army, Air Force and Navy. The Navy and Air Force did not consider action along this line necessary or even justifiable at that time. While it was pointed out that 1,500 women could "usefully be employed with the Army" the capabilities of the low category men, of whom there was a surplus, were first to be investigated. It was agreed, however, that should it become necessary to employ women, the Navy, Army and Air Force respectively should control entirely any women's Services which might be formed. The three Services were willing to accept personnel from a women's organization under National War Services, but wished also to be able to enlist any women they considered particularly suitable.

20. At a meeting of the War Committee of the Cabinet on 3 Apr 41 it was decided that the whole question of the employment of women should be reviewed at an early opportunity and in the meantime the Associate Deputy Minister of National War Services, Mr. Justice Davis, was requested to confer with representative of the other departments concerned to ascertain the ways in which women were then employed and any recommendations as to future employment. It was assumed that women required to be employed by the Department of National Defence as auxiliaries to the Armed Forces would be selected and enlisted in the same way in which men were enlisted in the Services. It was generally considered that, in view of the problems arising out of the existence of the many women's organizations, Athe time has now been reached when prompt action must be taken. Brig M. Pope, A.C.G.S., pointed out that "the existing situation constitutes a nettle of some size, and the nettle should be firmly grasped". Brig Pope suggested that if it was necessary to employ women they should be brought into the Army as uniformed (female) soldiers", "with an Officer Administrating under the A.G."; and that all suitable women should be brought into the new Corps without recognizing the "vested rights" of existing organizations which might lead to various difficulties later. At a meeting of the Defence Council on 2 May 41, it was stated that "the cabinet...had acquiesced generally in the use of women in such posts as might be considered suitable.

21. On 23 Jun 41 the A.G. called a meeting at which were present the D.A.G., D.G.M.S., D.E.S., D.Q.M.G., representatives from D. Org, D. Pers and D.A.G.(M), and the Chief Inspector of Catering and Messing. The A.G. stated that it had been decided by the Minister to proceed with the formation of a Women's Corps, and to this end organizational and administrative details were to be worked out. A brief outline of the conditions which were to apply to the employment of women read as follows:

Women will replace men in certain H.W.E., e.g., Training Centres and establishments, and also on the of the H.W.E. of the R.C.A.S.C. and R.C.O.C.

They will also replace men at N.D.H.Q., Command, District, Area and Concentration Camp Headquarters.

In the case of N.D.H.Q. and District Headquarters, C.W.(A)S. personnel will, for the present, NOT be employed to replace clerks, typists and stenographers normally found by the Civil Service.

There will be no increase in the H.W.E. of the Establishments in which women replace men. C.W.(A)S. personnel will, however, for the purposes of administration be organized into Detachments, Platoons and Companies.

When women are required, District Officers Commanding will notify N.D.H.Q. how many women are required, the nature of their employment and the place where they are to be employed.

D.A.G.(M) will apply to National War Services for these women who will, in turn, arrange with their local Representatives for the personnel required to report.

The women, after a probationary period, will be enrolled into the C.W.(A)S.

22. It was estimated that a total of 5,398 women could be employed in Districts, camps and areas. Arrangements for accommodation, provision of uniforms and equipment, Schools of Instruction for the training of administrative personnel, hospitalization and the drawing up of establishments were among the chief problems to be solved.