Army Headquarters Report No. 15 - dated: May 1 1947 - Part V
The Canadian Women's Army Corps, 1941-1946
C.W.A.C. Military and Pipe Bands:
104. A brass band and a pipe band were authorized to form on 8 Aug 42 and were used generally for recruiting purposes during 1943-44. Between August and December 1943 the two bands made a coast-to-coast tour of Canadian cities accompanied by two C.W.A.C. officers and a recruiting Sergeant. The second tour held from March to November 1944 it was no longer necessary to use the bands for recruiting purposes. Accordingly both bands were despatched overseas and toured England and the Continent.
Women's Services Health Centres, R.C.A.M.C.:
105. Two Women's Services Health Centres were authorized to form in 1944, No 1 W.S.H.C. at Harrison Hot Springs, B.C., and No 2 W.S.H.C. at Oakville, Ontario. Their purpose was to provide convalescent and remedial care for female members of the three Services. It was anticipated that by the operation of these centres the number of discharges might be reduced to a large extent, but it was emphasized that "psychiatric cases and behaviour problems were not suitable for admission to these centres". No 1 W.S.H.C. functioned from 2 Jan 45 until 31 Jan 46, and No 2 W.S.H.C. from 1 Dec 44 until 8 May 46.
Madres:
106. In October 1945 it was decided to appoint suitably qualified C.W.A.C. officers as Assistants to the Protestant Chaplains. Five "Madres" were appointed and employed in Halifax, Toronto, Kitchener, Ottawa and Vancouver. Their duties, which were not confined to Protestants alone, were much the same as those of the Padres with the exception that they did not hold church services. It was considered that these officers contributed a great deal to the general welfare and morale of personnel.
Proposals for Reorganization:
107. Early in 1945 investigation proved that C.W.A.C. administration was top-heavy and uneconomical. Strength returns dated 12 Dec 44 showed that 566 officers and 11,576 other ranks were employed in Canada and adjacent regions as follows:
Employed as replacements - 7,781
Depot staffs - 661
Administrative unit staffs - 1,650
Training centre staffs - 368
In training (basic or advanced) - 618
On draft - 27
Miscellaneous (in schools, on discharge, etc) - 1,037
Total - 12,142
In other words, 2,311 all ranks on depot and unit staffs were employed to administer 7,781 all ranks. Since employing units were already allotted administrative personnel for their complete establishment, part of which the 7,781 replacements filled, two different staffs were being provided to administer the same replacement personnel. It was suggested therefore that all C.W.A.C. replacement personnel should be taken on the strength of the employing units; that C.W.A.C. administrative staffs should be reduced to a scale of one officer and two N.C.Os. in units employing up to 200 C.W.A.C. replacements.
108. It was pointed out in considering these suggestions that the two main points to receive consideration were the increased responsibility which would be placed on the employing units, and the decrease in responsibility and control held by the C.W.A.C. as a Corps over its members employed in units. The advantages which would be gained by carrying out these suggestions were:
(1) Unified responsibility
(2) Unified control
(3) Unified loyalty
(4) C.W.A.C. Administrative Officers within the employing Unit who are familiar with that Unit's problems
(5) Saving in administrative manpower by utilization of services already set up for administration within the employing Unit.
(6) Saving in administrative manpower by eliminating duplication in paper work.
(7) C.W.A.C. administrative personnel surplus in consequence of the above available to fill large demands for C.W.A.C. personnel now outstanding.
The disadvantages were listed as follows:
(1) Reduction in C.W.A.C. esprit de corps so far as personnel employed with other than C.W.A.C. Units are concerned.
(2) Administration of C.W.A.C. employed personnel decentralized.
(3) Administration of C.W.A.C. employed personnel more dependent in the various Units upon the Officer Commanding who can not deal as adequately with problems peculiar to women as can a C.W.A.C. Administrative Unit Commander.
109. These suggestions were considered carefully during the following months. It was agreed that the reorganization of the Corps was not appropriate at that time, and that the matter should be reviewed in 1946. It was decided, however, that a test case should be set up at No 2 District Depot in Toronto by reducing No 19 Adm Unit to nil strength and placing its personnel on the strength of the Depot. The test was carried out and reported upon as follows:
No 19 Administration Unit, CWAC which administered CWAC at No.2 D.D. was reduced to nil strength effective 14 JAN 46 and its personnel absorbed into the HWE of No. 2 District Depot. This action involved a reduction in organization of 4 officers and 33 other ranks, the authorized strength of No. 19 Admin Unit, CWAC. Consequent upon the reduction to nil strength of No. 19 Admin Unit CWAC, the OC No. 2 District Depot assumed full responsibility for the administration of CWAC on strength of No. 2 D.D. and also of a miscellaneous group of CWAC employed and living within his camp area, but carried on strength of other Units such as CDC, RCEME, RCE. These CWAC were attached from their respective units to No.2 D.D. for all purposes except duty. The OC No. 2 District Depot then delegated disciplinary powers and responsibility for the CWAC within the camp area to the CWAC officer who had been OC No. 19 Admin Unit CWAC and who was now carried on the HWE of No. 2 District Depot. It is considered that this centralization of control in the hands of a CWAC Officer is essential to the smooth administration of CWAC within an area or unit.
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on 29 Apr 46, after more than three months' trial, all concerned in MD 2 expressed great satisfaction with the changed system of administration, and could visualize no disadvantages arising as a result of the change. Administration was running along smoothly and efficiently and at the same time a saving in authorized organization of 4 officers and 33 other ranks had been effected by the reduction of No. 19 Admin Unit CWAC to nil strength. In view of the success of the test case made in MD 2 at No. 2 District Depot, it is recommended that this new system of administration be put into effect generally should the CWAC mobilize again at some future date.
It was pointed out that under this system of administration the only C.W.A.C units required would be C.W.A.C depots and Training Centres. All other serving members of the C.W.A.C would be carried on the strength of existing Army units.
Demobilization:
110. With the cessation of hostilities, the return from overseas of the men for whom the C.W.A.C had furnished replacements, and the reduction in strength of the Canadian Army, it was no longer necessary to retain C.W.A.C personnel in the armed forces of Canada. On 22 Mar 46 it was noted that the C.W.A.C was to be demobilized "as rapidly as the exigencies of the Service permit". Instructions issued later stated that C.W.A.C demobilization was to be completed by 30 Sep 46.
111. Thus, after five years of service, the C.W.A.C disappeared. The efficiency of that service may be open to question, but it would appear that it had served its main purpose of relieving the man power shortage at a time when it seemed most critical. The fact that there was no precedent in Canada for a women's Army Corps, and that the five years of its existence were given over in a large measure to experimenting with various systems of organization and administration, undoubtedly hindered the quantity and quality of service.
112. The following message from the A/A.G. to all ranks, C.W.A.C., was despatched on 3 Aug 46:
On behalf of the Minister of National Defence and Members of the Army Council I extend heartiest congratulations to all members of the Canadian Women"s Army Corps on the occasion of its fifth birthday 13th August 1946. During the past five years you have established an enviable record of devoted and efficient service and as you "stand down" you can look with justifiable pride on your achievements. Now with your task completed, your objective attained, we are confident that you will carry into your homes and communities the same fine spirit, the same enthusiastic service you have shown in the Army B remembering always that as citizens of this great Dominion you have an equal responsibility in peace as in war.
Recommendations:
113. In August, 1946, Lt-Col D.I. Royal, O.B.E., then C.W.A.C Staff Officer at N.D.H.Q., prepared a "Report and Recommendations on the Canadian Women's Army Corps" submitted "in the hope that it may be useful in the event of another emergency, necessitating the employment of women in the Army". She stated:
While it is appreciated that radical changes in Army organization may render these recommendations obsolete, it is felt that certain fundamentals will remain and that valuable time might be saved by experience gained in the handling of women during the past five years.
Col Royal pointed that it would be highly desirable that a Women's Force be approved immediately in the event of another war, thus paving the way for early "man-power planning" and the recruiting of women for employment in static formations. If it should be decided to enlist women, they should be represented in the initial planning and discussions by a panel drawn from the Reserve of C.W.A.C. officers. From this same source a nucleus of officers could be provided "to functions until the responsibility could be handed over to younger women if necessary". If regulations were drawn up in advance, and if accommodation and uniforms were available when enlistment should commence, much of the difficulty experienced in the organization of the C.W.A.C., as noted in this report, would be avoided. Instead of publishing separate regulations for a C.W.A.C., amendments might be written into K.R. (Can) as was done with F.R. & I.
114. Col Royal pointed out that the system of administering the C.W.A.C had proven generally "topheavy" and that in future care should be taken to reduce duplication of administration as far as possible. A special Directorate at N.D.H.Q. to deal with general matters pertaining to a C.W.A.C. would again be necessary. In addition to a Director of C.W.A.C., it might prove valuable to appoint an officer in other Directorates administering women to be responsible for any details pertaining to C.W.A.C. personnel. Liaison could be maintained between the Director, C.W.A.C., and these officers representing other Directorates.
115. Since the "top-heavy" administration was particularly noticeable at unit levels, it was suggested that unit staffs be decreased, and that administrative personnel be carried on District rather than unit establishments in order to establish a direct channel of communication to District Headquarters on welfare and policy matters; to facilitate training, movement and promotions of such personnel; to provide a pool of officers and N.C.Os. for replacement of personnel in C.W.A.C depots and Training Centres; and to assure a standardization of policy in areas where several units were concentrated.
116. The induction of women into the Army and their initial training seemed to be best done by women. Depots and Training Centres similar to those had been established and proven adequate might again be set up.
117. C.W.A.C personnel received 80% of the Army rates of pay, with equal trades pay and command and staff pay. Col Royal recommended that, should a C.W.A.C. again be organized, women be given basic pay equal to that of the men. It was felt also that dependent's allowance should be granted to C.W.A.C. personnel married to men in the armed forces to the same extent that it was granted to civilian wives to service men. The clothing allowance of $15.00 on enlistment and $3.00 quarterly thereafter proved inadequate, and should either be increased in future on the basis of prevailing costs or replaced by an issue of such clothing.
118. With regard to the issue of clothing, Col Royal stated that while the scale of issue proved adequate, "the importance of appropriate and smart uniforms cannot be too greatly stressed", and added that is effect on "morale, health, efficiency of serving personnel, recruiting and public opinion is great". The summer uniforms proved impractical and were seldom worn. The waterproof coast, which was worn as a topcoat, left much to be desired. Col Royal mentioned that, while it was not practical to make detailed recommendations regarding clothing, it was important that sufficient recommendations regarding clothing, it was important that sufficient stocks of clothing should be on hand when actual recruiting commenced.
119. Concerning training, Col Royal stated that "it is considered important that in any future mobilization the necessity for training be realized immediately" and that "this is particularly vital in the case of officers". In addition she pointed out:
It cannot be over-emphasized that where CWAC Officers and NCOs are expected to act as personnel officers for female personnel, special and careful training is needed. Experience of the last 5 years has proven the need for instruction in woman management, welfare, medical education and the tendency has been to stress this training more and more. Lack of such training in early service proved a great handicap to many of our original officers. 120. As a result of the appointment of Educational Officers, the educational standards of the C.W.A.C. appeared to have been improved, and it was felt that "such officers should be included in establishments from the beginning". A general improvement in morale was noticed with the appointment of C.W.A.C. Messing Officers, and in the event of future mobilization it was considered that these officers might be used to a great extent. C.W.A.C. Welfare Officers and Madres also proved useful in helping to increase the efficiency of C.W.A.C. personnel. Better medical education was recommended.
With regard to recruiting, Col Royal stated:
It is essential that those in charge of recruiting realize the necessity for careful selection of recruits for a Women's Corps. Army life is harder for women to take than it is for men, and emotional stability and fairly high intelligence are essential. Experience has shown that the bulk of disciplinary cases were among the general duty types. A similar situation existed with the incidence of VD and illegitimate pregnancy. Lack of careful selection cost the Government a great deal of money, with little return in the work carried out. The effect of having bad types in barracks was upsetting to the remainder of the personnel, and proved a deterrent to the more desirable type of would-be recruit.
Col Royal recommended that a suitable female recruiting staff should be provided in future, and that general recruiting should not be begun until provision had been made for a trained cadre of C.W.A.C. officers and N.C.Os. to handle first quotas, accommodation, clothing and training.
121. Col Royal made the following recommendations concerning officers:
It is felt that selection of officers must be given careful attention from the start in any future mobilization. For all officers, maturity and emotional stability are essential. It is recommended that 21 years be set as the minimum age for appointment generally and 24 years for officers selected as Personnel Officers. Facilities should be set up for appraisal before candidates are despatched to Training Centre. Some similar establishment to Auxilliary Territorial Service, War Officer Selection Board should be formed on a Command basis. Due consideration must, of course, be given regarding proposed employment of the candidate on commissioning but since all officers will probably require to administer CWAC personnel, even officers recommended for employment as specialists with other Corps should be selected with an eye to their potential ability as "woman managers". Similarly, it is recommended that all CWAC Officers take OTC together and subsequently continue to Corps training with the Corps concerned. CWAC Officers employed as Personnel Officers should be given refresher training as required. Employment of CWAC Officers could, it is felt, be enlarged in scope. It is recommended that, in the future, opportunities for direct appointment of personnel qualified by civilian emloyment, should be increased. Many well qualified women were prevented from enlisting by reason of uncertainty as to the length of time they would have to serve in the ranks before being commissioned. Some had financial commitments which made it impossible for them to accept service as privates.
Cheers
