[Mark W. Tonner]

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

The Canadian Women's Army Corps, 1941-1946

Formation - C.W.A.C.:

23. Public announcement of the Government's decision to enlist women volunteers for the armed forces and to form a Canadian Women's Army Corps was made on 27 Jun 41.2 On 30 Jun 41 Capt Benoit, Department of National War Services, met with representatives of the A.Gs. Branch to clarify certain points arising out of the press release. It was pointed out that after recruits found by National War Services had been accepted for service in the C.W.A.C., N.D.H.Q. was entirely responsible for them. It was agreed that some endeavour should be made to prevent women skilled in munitions or other important industrial work from enrolling in the C.W.A.C. If an individual with special qualifications was required for employment, she was to be instructed to register first with National War Services, after which N.D.H.Q. could make application for her. Although a number of women could be employed immediately it was decided that until the machinery of National War Services was set up to register women for service, and to recognize and organize the supply of women through the existing Corps, no steps were to be taken. It was estimated that from one to two months would be necessary to set up a satisfactory method of registration.

24. An A.G. circular letter of 4 Jul 41 asked all and D.0s. C. to submit their requirements for C.W.A.C. personnel and added:

The object of the Corps is to supply woman personnel to replace Category A men now employed on administrative and maintenance duties on existing, establishments, thus relieving men for other duties.

(a) For administrative purposes it is proposed to organize the C.W.A.C. into detachments consisting of one or two subsections, platoons of two or more sections, and in time companies of two or more platoons.

(b) The subsection will be the basic unit consisting of twelve women, and will as far as possible consist of women employed in the same type of work, such as "clerical" "administrative", "transport". The "clerical" subsections would include, for example, stenographers, typists, clerks, telephone and radio operators, messengers, etc. The "administrative" section would include such personnel as cooks, canteen helpers, storewomen, dental assistants, etc.

(c) For the present C.W.A.C. personnel will not be employed as clerks, stenographers or typists at N.D.H.Q. or at District Headquarters, in view of the existing arrangements with the Civil Service Commission; nor will C.W.A.C. personnel be employed in units of field formations, coast defence or internal security troops.
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3. Until suitable arrangements can be made for accommodation and administration within camps, C.W.A.C. personnel will be limited to places where they can "live out" and will receive subsistence in lieu of quarters.

4. It is obvious that immediate replacement of men by women on large scales cannot be effected due to the necessity of training and organization. It must also be borne in mind that a certain number of men have to be employed in order to be trained for field formations and other troops.
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6. It is intended that the Department of National War services will register all women who offer their services for the C.W.A.C. As and when this Department requires women for the various branches of the service it will requisition same from the Department of National War Services in the same manner as is now used for Recruits. When the requisition has been complied with, the personnel in question will come under the Department of National Defence and will cease to have any connection with the Department of National War Services.

25. Since the C.W.A.C. was not to form part of the Army, and since different regulations for a corps of women would be necessary, suggested regulations and instructions had been drafted during 1940-41 for comment by the various Branches at N.D.H.Q. A new draft was prepared on 13 Aug 41 for submission to the Privy Council, in which it was pointed out that the C.W.A.C. was to be organized on a military basis and come under military control. Provision was made for an Officer Administering at N.D.H.Q. and a C.W.A.C. Staff Officer at each District Headquarters. Each D.O.C was to be responsible for training, administration and discipline of C.W.A.C. personnel within the District. Training included squad drill without arms, saluting drill, first aid, gas defence, and fire drill. Personnel were to possess on enlistment qualifications for the various trades.

26. With regard to qualifications for enrolment, the minimum and maximum ages for officers were 21 and 55 years. In addition, officers had to be British subjects, of a medical category, not lower than "B", hold a matriculation certificate or an acceptable equivalent, and have obtained such military qualifications as might be authorized from time to time. Other ranks had to be between the ages of 21 and 40 years, British subjects, medically fit (i.e. not lower than category "'B"), have completed Grade VIII or have equivalent education, and have no dependent children. Recruits were to be attached to the C.W.A.C. for a probation period not exceeding three months' satisfactory service.

27. Officer ranks and badges of rank, were as follows:

C.W.A.C. Rank:
(Note: the Army equivalent rank follows in brackets)

Honorary Controller - Two maple leaves over a beaver (Colonel)
Chief Commander - Maple leaf over a beaver (Lieutenant-Colonel)
Senior Commander - Beaver (Major)
Junior Commander - Three maple leaves (Captain)
Subaltern - Two maple leaves (Lieutenant)
2nd Subaltern - Maple leaf (2nd Lieutenant)

Other ranks and badges of rank were similar to those of the Infantry, with the exception that instead of "Private" the term used was "Volunteer", and a recruit was to wear a red arm band inscribed "C.W.A.C. " in gold letters. All promotions of other rank personnel had to be approved by the C.A. with the exception of promotion to W.O. I for which A.G. approval was necessary. A D.O.C. might authorize unpaid acting rank not above that of Sgt within his District.

28. The following daily rates of pay were authorized:

Chief Commander $ 6.70
Senior Commander $ 5.20
Junior Commander $ 4.35
Subaltern $ 3.35
2nd Subaltern $ 2.85
Sergeant-Major (WO I) $ 2.80
Company Sergeant-Major (WO II) $ 2.10
Staff Sergeant $ 1.70
Sergeant $ 1.50
Corporal $ 1.15
Lance-Corporal $ 1.00
Volunteer (classified) .95¢
Volunteer on enlistment .90¢

No dependent's allowance or trades' pay were to be granted to C.W.A.C. personnel. At first it was estimated that 1,992 women would be enrolled, for whom the annual cost would be approximately $1,881,831. This figure included pay, uniform and equipment and medical and dental care. The annual saving made possible by replacing with 1,992 C.W.A.C. personnel an equal number of soldiers was estimated at $18, 786.

29. It had been intended to administer and quarter V.A.D. personnel with the C.W.A.C., giving them the rank of 2nd Subaltern. It was pointed out, however, by the J.A.G. that it would be best no to deal with any non-departmental organizations, or to single out one non-departmental organization for special treatment.

30. D.Os.C. were to submit their demands for C.W.A.C. personnel to N.D.H.Q. for approval, after which they were to be passed to N.W.S., who would then supply the necessary personnel. Where the Department of National War Services was unable to fill the demand, the Department of National Defence might obtain the personnel from other sources. With regard to the recruiting for the C.W.A.C. through N.W.S., it was agreed on 5 Aug 41 that "eventually recruitment without N.W.S. intervention would be better" and that in any case there was no obligation to accept recruits sent forward by N.W.S.

31. On 17 Jul 41 the Minister of National Defence had approved the formation of the C.W.A.C., and on 31 Jul the War Committee of the Cabinet "approved in principle" the proposal. Privy Council authority was granted on 13 Aug 41, by P.C. 6289. Altough the organization of the C.W.A.C. was complete on paper, the task of carrying out the organization had not yet been begun. In the early part of July, Matron-in-Chief E. Smellie, C.B.E., R.R.C. R.C.A.M.C., (Nursing Service) was detailed for duty as Acting Officer Administering the C.W.A.C. On 14 Aug 41 Matron Smellie left for Victoria, B.C., at which point she began her visit of all Districts in order to:

(a) Explain the proposed regulations, uniforms and pay.

(b) Find out the local conditions and requirements where women will be employed.

(c) Get the views of D.O.Cs. regarding local women Auxiliary Corps and best way of utilizing their services.

(d) Meet the Cmdts. Of local women's corps to obtain names of suitable personnel for consideration as officers and N.C.Os. for administering the units of the C.W.A.C. at various stations.

(e) Get in touch with leading women in the communities who are interested in women's work to obtain their advice and also names of persons considered as potential administrative officers and N.C.Os.

At this time, owing to the lack of suitable accommodation, personnel were to be employed only in places where it was possible to place them on subsistence. Soldiers were to be replaced gradually, and low category men who could not perform other duties were not to be replaced. It was pointed out that C.W.A.C. personnel would be used to complete establishments, but did not represent an increase to establishments. In no case were members of the new Corps to be sent where less than 12 such persons were to be employed.

32. Applications for enlistment in the C.W.A.C. were forwarded through the District Registrars to the Department of National War Services. After considering the applications, a nominal roll of acceptable applicants was sent to the District Registrars who notified those selected. The applicant was then given three days in which to supply a medical report, and, if satisfactory, was instructed to report for enrolment in the C.W.A.C. The first recruits were expected to report on or about 1 Sep 41 at one of the following places:

No. 1 District Depot, London, Ont.
No. 12 Basic Training Centre, Chatham.
No. 10 Basic Training Centre, Kitchener.
Headquarters, No. 2 District Depot, Toronto
No. 23 Basic Training Centre, Newmarket.
Canadian Army Trade School, Hamilton.
Camp Headquarters, Niagara Camp, Niagara Falls.
No. 22 Basic Training Centre, North Bay.
Corps Headquarters, C.W.A.C., Bate Bldg., Ottawa.
No. 3 A District Depot, Kingston.
Headquarters, Barriefield Camp, Barriefield.
No. 32 Basic Training Centre, Peterborough.
Officers Training Centre, Brockville.
School of Army Administration, St. Johns, Que.
Headquarters Military District No. 5, Quebec
No. 10 District Depot, Winnipeg
R.C.A. Training Centre, Brandon
H.Q. Pacific Command, Esquimalt, B.C.
No. 11 District Depot, Victoria, B.C.
No. 11 A District Depot, Vancouver
No. 12 District Depot, Regina
H.Q. Military District No. 13, Calgary
No. 13 A District Depot, Edmonton
No. A-20 R.C.A.S.C. Training Centre, Red Deer, Alta

33. On 12 Sep it was noted that the organization of the C.W.A.C. was proceeding satifactorily. On the recommendations of matron Smellie, the first C.W.A.C. officers had been appointed as soon as recommendations for the remainder of the Districts had been concurred in. 157 recruits were to report at the various centres by 15 Sep, and it was considered that the first demands for C.W.A.C. personnel would be filled by the end of the month. It was expected that in their second demand D.Os.C. would ask for a Asubstantially larger number of C.W.A.C. recruits than in the first demand.

34. It may be of interest to note here that officials of the Civil Service Commission did not look upon the new Corps with any great degree of favour. On 18 Aug 41 National War Services had been informed that for the present no permanent Civil Servants would be enrolled in the C.W.A.C. On 25 Sep 41, at a meeting of the A.G., C.H. Bland, Chairman of the Civil Service Commission, and Col C.M.M. Kay, the A.G. asked Mr. Bland Awhat stand the Civil Service Commission would adopt to the policy of employing C.W.A.C personnel in offices now employing Dominion Civil Servants. Mr. Bland replied that he was not in agreement with such policy, and stated that he was definitely opposed to the employment of any C.W.A.C. personnel at N.D.H.Q. A report of the meeting reads in part as follows:

Mr. Bland stated that permanent Civil Servants would not be given leave of absence for the purpose of enrolling in the C.W.A.C., and that temporary employees will be discouraged from joining. He further stated that in his opinion the Department should decide whether they were going to staff their offices with Civil Servants or with C.W.A.C. personnel. He was opposed to the mixing of the two. He stated that considerable dissension now existed in the Civil Service where permission had been granted permanent employees (men) to enlist. Some of these men had been given commissions and were sent back to fill positions which brought them in contact with their old office employees. As commissioned officers they are receiving higher rates of pay and had privileges which were not granted to the Civil Servants. He stated unfortunately this situation could not be prevented in so far as the men were concerned, but they did not want to be faced with the same situation with regard to the women. Mr. Bland stated that in N.D.H.Q. offices it might be feasible if all of the female personnel were enrolled in the C.W.A.C. and remained in their same positions, carrying out their same appointments, but that if some were not eligible for enrolment, he foresaw trouble. In answer to a question as to what type of work he thought C.W.A.C. personnel might be used for, Mr. Bland suggested ambulance drivers, hospital dietitians, Apractically any work except typists, stenographers, secretaries and clerks, It was agreed that no C.W.A.C. personnel would be enrolled at N.D.H.Q., and that none would be employed in any District office Awhere same is adjacent to offices employing similar Civil Servants.

35. Later, by the middle of 1942, C.W.A.C. were required to replace C.M.S.C. and other personnel who could be posted overseas, and the Civil Service Commission was informed that C.W.A.C personnel would be employed at N.D.H.Q. as soon as living accommodation was available. Authority to carry out this plan was given on 21 Oct 42. Five barracks were occupied by C.W.A.C. in Ottawa: Glebe, Varsity Oval, Argyle, Kildare and Landsdowne. C.W.A.C. personnel continued to be employed at N.D.H.Q. until the end of August 1946.

36. The following units and detachments were authorized by the first Corps Orders, published 29 Sep 41:

Corps Headquarters Ottawa, Ontario

M.D.1:
No 1 Pl - A Coy - London, Ontario
No 2 Det - A Coy - Chatham, Ontario
No 3 Pl - A Coy - Kitchener, Ontario

M.D.2:
H.Q. B Coy & No 1 to 4 Pls - Toronto, Ontario
No 5 Det - B Coy - Newmarket, Ontario
No 1 Pl - C Coy - Hamilton, Ontario
No 2 Pl - C Coy - Niagara, Ontario
No 1 Det - D Coy - North Bay, Ontario

M.D.3:
No 1 Pl - E Coy - Kingston, Ontario
No 2 Pl - E Coy - Barriefield, Ontario
No 3 Det - E Coy - Peterborough, Ontario
No 1 Pl - F Coy - Brockville, Ontario
No 2 Pl - F Coy - Ottawa, Ontario

M.D.4:
No 1 Pl - G Coy - St. Jean, P.Q.

M.D. 5:
No 1 Pl - H Coy - Quebec, P.Q.

M.D. 6:
No 1 Pl - I Coy - Halifax, N.S.
No 1 Pl - J Coy - Sydney, N.S.

M.D.10:
H.Q. and No 1 and No. 2 Pls - K Coy - Winnipeg, Man
No 1 Det - L Coy - Brandon, Man

M.D. 11:
No 1 Pl - M Coy - Esquimalt, B.C.
No 2 Det - M Coy - Victoria, B.C.
No 1 Pl - N Coy - Vancouver, B.C

M.D. 12:
No 1 Pl - O Coy - Regina, Sask

M.D. 13:
H.Q. and No 1 and No 2 Pls - P Coy - Calgary, Alta
No 1 Det - Q Coy - Edmonton, Alta
No 1 Det - R Coy - Red Deer, Alta

37. The following were appointed as District Staff Officers, with the rank of Junior Commander:

Mrs. J.B. Kennedy M.D. 11
Mrs. H.K. Rankin M.D. 12
Mrs. M.J. Dover M.D. 13
Mrs. A. Sorby M.D. 10
Miss M.C. Eaton M.D. 2
Miss M.R. Barker M.D. 1
Mrs. A.M. McBride M.D. 3
Miss J.R. Sewell (later Goodman) M.D. 7
Miss M. St.Laurent (later O'Donnell) M.D. 5
Mrs. W. Power M.D. 6
Mrs. M.J. Ramsay M.D. 4

In November the Minister of National Defence approved the appointment of Junior Commander J.B. Kennedy as Officer Administering the Canadian Women's Army Corps with the rank of Senior Commander (effective date 8 Nov 41).

38. Almost with the beginning of the Corps, recommendations began to be made for its improvement. On 9 Sep 41 the Minister of National Defence Stated that he considered the names of the ranks unwieldy and unattractive. On 3 Nov the A.G. reported that the following proposals regarding the C.W.A.C. were before the Privy Council:

Grant of Tradesmen's Rates of Pay under the same conditions as for men, but at two-thirds those issued to the men. Grant of clothing allowance on discharge.

Exemption from Income Tax and National defence Tax as for men of the Defence Forces.

Extending the provisions of the Civil Re-employment Order to members of the Canadian Women's Army Corps.

Eligibility for Rehabilitation Grant.

General Browne also pointed out that C.W.A.C. personnel were entitled to quarters, rations, transportation and travelling allowances at the same rates and under the same conditions as the Army; that they were eligible for disability pensions and were granted railway concessions while on leave. The system of recruiting was considered excellent in theory, but Aoften poor in practice. It had proved to be a very slow method of obtaining recruits, and in additions, the lack of a direct and personal contact with applicants was satisfactory. It was suggested, therefore, that applicants might be interviewed at District Headquarters and given a medical examination, after which the N.W.S. application form might be completed and forwarded to the District Registrar.

Authorization as a Corps of the Active Militia:

39. As early as 29 Aug 41 it was suggested that the C.W.A.C. should form part of the Active Army for the purpose of exercising more effective control and supervision and to facilitate uniformity in administration, but it was decided that the status of the C.W.A.C. would remain as at present. Almost immediately, however, this anomalous status gave rise to difficulties. The chief of these was encountered when consideration was given to the granting of post-discharge benefits to members of the C.W.A.C. Because the C.W.A.C. was not actually part of the Army, it's member were not eligible for post-discharge benefits. The C.W.A.A.F., on the other hand, as a component part of the R.C.A.F (see para 43), was eligible for such benefits, and it was considered essential that the C.W.A.A.F. and the C.W.A.C. should receive absolutely similar treatment. In order to ensure this, two courses of action were suggested: the C.W.A.C. might be recognized as a part of the armed forces, or Orders-in-Council might be passed to cover each phase of post-discharge benefits.

40. On 31 Jan 42 the A.G. forwarded to the Minister a submission to the Privy Council recommending that the C.W.A.C should become part of the Active Militia of Canada. He stated that, while he did not feel that the C.W.A.C. should be brought under the operation of the Army Act, in view of recent developments and more particularly the re-actions from the comparison between the Canadian Women's Army Corps and the Canadian Women's Auxiliary Air Force, such a step might be advisable.

41. A memorandum from the Minister on 10 Feb pointed out that unless the C.W.A.C. became part of the Army, special regulations would have to be passed constantly to enable members of the C.W.A.C. to serve effectually with the Army. He stated also that he had been strongly in favour of the formation of the C.W.A.C. as part of the Army when organization was first begun, and that unless there is strong ground for the C.W.A.C. remaining as it is, I consider it should be changed. Accordingly, by P.C. 1965 of 13 Mar 42, the C.W.A.C. was named as a Corps of the Active Militia, with effect from 1 Mar 42. All personnel who had been enrolled up to this time had then to sign a declaration of their willingness to serve in the C.W.A.C. as part of the Army, and under the authority of this Order in Council C.W.A.C. officers assumed Army ranks and badges of rank.

42. During the pre-organization and organization periods of the C.W.A.C., close liaison was maintained with the Auxiliary Territorial Service in order that the C.W.A.C. might profit by the lessons learned during the organization of the A.T.S. This liaison continued throughout the existence of the C.W.A.C., and was exemplified by exchanges of officers and by the training of A.T.S. platoons recruited in Jamaica at No 3 C.W.A.C.(B) T.C. Maj-Gen Jean Knox, Director, A.T.S., on the invitation of N.D.H.Q., paid a visit to Canada during September and October 1942 to inspect
C.W.A.C. formations in all Districts and discuss C.W.A.C. problems generally with the various officers concerned.

43. The C.W.A.A.F. was planned and organized side by side with the C.W.A.C., and officers of both Army and Air Force discussed together the various problems which arose. The Canadian Women's Auxiliary Air Force was authorized on 2 Jul 41, by P.C. 4798. Unlike the C.W.A.C., the C.W.A.A.F. was from the beginning, a component part of the R.C.A.F. Recruits were obtained from the Department of National War Services during the first months following the formation of the C.W.A.A.F. Approximately 15 administrative personnel were enlisted first, and were trained at a C.W.A.A.F. Training Depot in Toronto. General recruiting commenced at the end of November 1941, with up to 150 recruits being accepted weekly. Rates of pay were approximately two-thirds of the pay for the equivalent R.C.A.F. non-flying rank. Early in 1942 the C.W.A.A.F. was renamed the Royal Canadian Air Force (Women's Division). The third of the women's Services, the Women's Royal Canadian Naval Service, was not organized until 29 Aug 42. Recruiting began in August, and the main training centre was set up at Galt, Ontario.

44. On 28 May 42 all D.Os.C. were informed of a proposal to change the designation of C.W.A.C. companies by numbering them consecutively in the order in which they were originally formed, or may in future be organized. Companies were to consist of four platoons each of not less than 25 and not more than 50 all ranks, and detachments were to be abolished. The result was the authorization of 49 companies, with effect from 1 Oct 42 (G.O. 357, 1942).

45. On 19 Oct 42 the appointment of Officer Administering, C.W.A.C. was succeeded by that of Director, C.W.A.C., with the rank of Lt-Col filled by Maj Kennedy, the former O/A C.W.A.C. The immediate cause of this change appears to have been the rapid growth of the new Corps, which, by the end of September 1942, little more than a year after recruiting had begun, had already a strength of approximately 6,000. In view of the plans for future expansion it was also desirable for the control of the C.W.A.C. to be no longer centralized under the A.G., and for the appropriate Branches at N.D.H.Q. to take over the supervision of such functions as training, administration, etc. The change does not, however, appear to have been particularly successful. The new Director served merely in an advisory capacity, and had little, if any authority.4 In April 1943 it was agreed that the C.W.A.C. should be administered in accordance with the general policy of administration for other Corps of the Army, and on 13 May 43 the Directorate of C.W.A.C. ceased to function. In its place, two senior officers' appointments were created: Lt-Col Kennedy, who had been Director, C.W.A.C., became G.S.O. 1 to advise in all matters of C.W.A.C. training; and Maj (later Col) M.C. Eaton was appointed A.A.G. to coordinate all C.W.A.C matters handled by the A.G. Branch.

46. On 9 Feb 43 depot companies and composite stores were authorized for each District. This step had apparently been under consideration for some time. The depots were to take over medical examinations, AM testing, and documentation of all recruits, and to house personnel awaiting training, discharge or posting.