Women at War

[Mark W. Tonner]

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

The Canadian Women's Army Corps, 1941-1946

Reorganization:

47. During the latter part of 1942 it became obvious that the system of C.W.A.C. companies was awkward and unwieldy, since personnel were carried on company establishments and covered off vacancies in their employing units. One of the main disadvantages of the Acompany system was that personnel were shown on the strength returns of both companies and employing units, thus giving a false overall strength. Matters of discipline and promotion were complicated because of the dual authority under which personnel functioned.

Proposals for the Formation of Reserve and Cadet Corps:

48. The problem represented by the unofficial women's voluntary organizations had not yet been solved. In June 1941 the following terms of recognition were suggested:

Authority to wear uniform of an approved but not necessarily standard pattern.
Authority to train and drill as a military body.
Authority to adopt an approved name.
Authority for the formation of new Corps.
Authority to form additional units to an existing Corps without permission of N.W.S
Authority to use military ranks or badges of rank.
Authority to bear, or train in the use of, weapons.

It was also pointed out that to ignore the existence of these un-authorized Corps was highly undesirable and to refuse to recognize them suicidal.

49. The press on 17 Nov 42 and again on 3 Dec 42 indicated that the formation of a Reserve C.W.A.C. was under consideration at N.D.H.Q. Letters began again to pour in from the various unofficial corps, seeking recognition. On 1 Feb 43 Maj-Gen B.W. Browne, D.G.R.A., asked the opinion of the C.G.S. on the formation of a Reserve C.W.A.C., and outlined the arguments in its favour as follows:

"such a Reserve Corps will be a valuable background to the Active Corps and will be a source of recruits. Many men who join a Reserve unit a sooner or later volunteer for general service and there is no reason to think that women will not be similarly influenced. Also many women enlisting into a Reserve C.W.A.C. would eventually be able to volunteer for the Active Corps for limited service, that is, service in their own communities. Women will relieve men of the Reserve Army from Administrative duties such as clerks, storemen, etc., so that they may carry on with their Military Training. C.W.A.C. personnel could also relieve men in case of mobilization. By providing a military organization under D.N.D. control for women desiring to serve in a military capacity, the difficulties which have arisen and will arise, through the organization of semi-military bodies, with no form of control other than that exercised by the Charities Act, or the Defence of Canada Regulations, would be obviated. Many of these Corps have military titles such as Women's Service Corps, Women's Auxiliary Transport Corps, etc., which leads to confusion in the mind of the public".

General Browne also suggested the formation of a Girl Cadet Corps as a Afruitful source for recruiting for the Active C.W.A.C. and pointed out that in Ontario, Manitoba and British Columbia girls were taking some form of military training. The D.O.C. M.D. 12 had reported that 5,000 girls in Saskatchewan were undergoing training, including women at the University of Saskatchewan. General Browne added:

"If the Department is to approve of the organization of a Girl Cadet Corps, it would seem that the time is now ripe for doing so".

50. The comments of the officers concerned were invited on this subject, and while the formation of a Cadet Corps received favourable consideration, it was thought that the value of a Reserve C.W.A.C. would not be in proportion to the effort and money expended. Lt-Col Joan B. Kennedy, then Director, C.W.A.C., wrote as follows:

"It is not quite clear how a Reserve Corps would be an aid to Recruiting for C.W.A.C.(A.F.) in as much as it is thought women would join the Reserve, taking advantage of the fact that they were not required to serve away from home or out of their own community, and in so doing consider they were doing their bit quite as effectively as those on active service. For this reason recruits enlisted in a Reserve Corps would be limited to those not eligible for active service. Cadet Corps for girls, it is thought, would provide a good source of potential recruits, but should be inaugurated for the three Women's Services".

The following memorandum outlines further observations with regard to a Reserve C.W.A.C.:

A. Points which may be considered to be opposed to such an Organization are enumerated below

(1) The drain of a Reserve C.W.A.C. on present facilities available for the training of female members of the Army must be carefully calculated in contrast to potential benefits which might accrue. Under present conditions the supply of clothing and equipment to Active C.W.A.C. personnel barely keeps pace with the demand. In the event of Reserve C.W.A.C. personnel being issued with a uniform, either identical or similar to that of the Active Women's Army, it is inevitable that periodical shortages would develop whereby issue of vital clothing and equipment to Volunteers of the C.W.A.C. would be prejudiced.

(2) Training accommodation in most district municipalities is limited.

(3) Disciplinary Control Recruiting Investigations have definitely indicated that the public behaviour and decorum of every individual member of the C.W.A.C. has a definite reaction on the Recruiting Pendulum. When a girl enlists in the C.W.A.C. she is exposed to the continual constructive guidance of her Officers, undergoes a month's extensive basic training, and knows that her life is inextricably bound to the Esprit de Corps she finds among her fellow volunteers. She knows that her failure to accept and abide by the regulations will result in punishment or discharge, which would mean personal discredit and discomfort. Yet, even under such conditions, occasional incidents have arisen which do not credit the Corps. Is it not reasonable to assume that if woman are not personally committed to any great degree, that a sense of freedom gained as a result of wearing the recognized official uniform of the Active Army, might manifest itself in a mode of behaviour to the prejudice of C.W.A.C. recruiting.

(4) The whole purpose for which C.W.A.C. has been organized is to replace men in non-combatant occupations in order to effect their release for combatant duty. The whole purpose of the Reserve Army is to train men for combat in the event of the necessity for complete mobilization arising, how could Reserve C.W.A.C. personnel replace men in the Reserve Army. They could not replace men in training for combat duty.

(5) The complicated training required in the actual engagement of modern warfare definitely requires that men be trained along various highly technical basic lines. Therefore, a Reserve Army for men is definitely of a practical value in assuring that men who are exempt from Active Military Service by virtue of age, marital status, or a low physical category, receive such training. Unfortunately, the basic training of C.W.A.C. cannot be considered to require prolonged practice along these lines and, therefore, this feature cannot be considered as a contributing factor to warrant the existence of a R. C.W.A.C., unless it is the intention that R. C.W.A.C. is something not made available to all C.W.A.C. personnel on Active Duty.

(6) Many girls desiring to wear a recognized uniform will go Reserve and forget their plans to go Active.

(7) Any work contributed by R. C.W.A.C. along clerical lines would be of a spasmodic nature and the process slow. Any office personnel available to R. C.W.A.C. would most likely be engaged in office duties all day and it is doubtful if a girl would be willing to perform the same duties again at night.

(8) The results of a recent survey disclose that there are presently at least 90 voluntary Corps in existence in Canada, with a strength of 199 Officers and 6,917 other Ranks. All of these Auxiliary Corps would have to be disbanded or amalgamated into the R. C.W.A.C., possibly resulting in political repercussions.

B. Points which would indicate the Value of such an Organization are submitted hereunder.

(1) A large body of women would be gathered together. These women could be instructed over a gradual period of time in the need for C.W.A.C. on Active Duty.

(2) If R. C.W.A.C. personnel were given the privilege of attending camps during summer vacations, there is a great possibility that girls reluctant to sever home ties would become acclimated to Army life and lose their fear of taking the final step into the Active C.W.A.C.

(3) Value of training ground for Officers and N.C.Os.

52. Concerning a Girls' Cadet Corps, it was learned that both Navy and Air Force had considered the matter, but no decision had been taken. Reasons for and against the formation of a Cadet Corps were outlined as follows:

(i) It exists in fact at many schools unofficially. In all Districts there are cases in which girls appear on parade with boys and are inspected by the District Cadet Officer.

(ii) It would help to develop in teen-age girls principles of patriotism.

(iii) Would act as source of potential recruits for C.W.A.C.

(iv) Would definitely direct interest of girls to activities of the C.W.A.C. and Army.

(v) Would benefit individuals from the point of view of physical and mental development, particularly students in smaller towns.

(vi) Organization in conjunction with existing Cadet Corps would not present many difficulties, i.e.

(a) Accomodation would be available.
(b) Instructors would be available from school staffs.

(vii) No large expenditure of public funds would be necessary.

(viii) In several Provinces Educational authorities desire Cadet training for girls as well as boys.

The main argument in favour of the formation of such a Corps B aside from the fact it does exist unofficially in many schools B is that it would provide a preliminary period of training for young girls who might be expected ultimately to enlist in Women's Division of one of the three Services. Obviously for those who would eventually so enlist, any system of training designed to inculcate a spirit of discipline, loyalty and Military bearing would be of value.

The following arguments were offered against the formation of a Cadet Corps:

(a) There is a time lag of several years between the age of leaving school and the age when girls enlist in the C.W.A.C.

(b) Cadet Corps would be limited to school girls and would not reach the working class or older girls who are also potential recruits.

(c) C.W.A.C. requirements relate more to Trade Training and Specialists with civilian qualifications than to Military subjects and drill.

(d) Would necessitate and increase in staff of Director of Cadets.

From a purely practical point of view, one must consider the fact that the function of women in the Army is to replace men in non-combatant duties. Upon enlistment into the C.W.A.C. women in any event must undergo a preliminary period of basic training and then proceed to Specialists training to qualify as Orderlies, Clerks, Stenographers, Drivers I.C., etc. Since, therefore, the eventual object is to train women in such Specialist duties, it must be conceded that preliminary training as cadets, which is repeated intensively later on at Basic Training, is open to question.

53. At a meeting of the Military Members of the Defence Council on 28 Apr 43, the formation of a Girls' Cadet Corps was considered, but was not concurred in. No further action appears to have been taken regarding the formation of a Reserve C.W.A.C. Moreover, the company establishment provided for six officers and 64 other ranks to administer four platoons totalling 200 personnel who were employed by other units. It was belt that this was wasteful of woman power and that the number of administrative personnel could be reduced, particularly since the new depot companies were to carry out a great deal of the work formerly allotted to companies, such as enlistments, documentation and discharge.

54. It had been suggested, and approved by the A.G., that a new system similar to that of the A.T.S. should be adopted under which C.W.A.C. establishments would consist only of administrative personnel, and that personnel employed by other units should be carried on the strength of those units.

55. In addition it was proposed to establish Group Head-quarters in Ottawa and Toronto, areas where several C.W.A.C. units existed, in order to coordinate disciplinary and administrative command and reduce the channels of communication between units and Districts. This also was a further step toward similarity to the A.T.S. system. Regarding this proposal, Brig R.D. Sutherland, D.A.G., wrote on 5 Aug 43 as follows:

The Adjutant-General is most anxious to improve the presently existing C.W.A.C. Company Command and through institution of carefully chosen competent senior officers vested with the function of command, bolster up the situation and improve present conditions. In the past the C.W.A.C. Staff Officer in the Districts has assumed more or less a dual role of Staff Officer and Senior C.W.A.C. Officer in the District with the assumption of certain functions of command. This procedure is considered fundamentally wrong and has not worked very satisfactorily. It is proposed to establish C.W.A.C. Group Commanders in those areas where sufficient concentration of C.W.A.C. personnel warrants such a set-up. In this way the Group Commander would devote her time and experience to the weeding out of incompetent Company and Platoon Commanders and replacement of those more qualified to command. This would in no way interfere with the staff functions of the District Staff Officer. It is considered that C.W.A.C. Group Commanders should have full powers of Commanding Officer within the terms of existing C.W.A.C. regulations.

56. On 26 Aug 43 a circular letter stated that the proposal for the change in policy regarding the C.W.A.C. companies had been approved. The letter read in part:

1. A change in policy has been approved under which C.W.A.C. Officers and Other Ranks employed with other than C.W.A.C. Units will be struck off strength their respective C.W.A.C. Companies and taken on strength by the Units with which employed. The only Officers and Other Ranks remaining on the strength of C.W.A.C. Companies will be:-

(a) The administrative staffs of the Coys.
(b) Newly enlisted personnel awaiting posting to Training Centres.
(c) Other personnel specially posted under A.G. authority.

2. Upon being taken on strength by the Units with which they are employed, C.W.A.C. Other Ranks will be attached back to a C.W.A.C. Company for Administration inclusive of pay and discipline and where applicable for quarters and rations.

3. C.W.A.C. Officers employed with other than C.W.A.C. Units will be carried on the C.W.A.C. Corps List and shown as seconded therefrom to the Units with which they are employed. Where expedient they should be attached to C.W.A.C. Companies for administration including pay and discipline.

4. The new policy will be effective 1 SEP 43 and changes in strength will be completed in all respects by 8 SEP 43.

57. G.O. 118 of 1944 authorized the redesignation of all C.W.A.C. companies as Administrative Units with effect from 1 Mar 44. On 1 Feb 44 it was noted that approval had been granted for the formation of No 1 and No 2 Group Headquarters, C.W.A.C., with effect from 15 Aug 43. Each was to have a strength of four officers and six other ranks. These Headquarters functioned until 31 Oct 45.

Director-General, C.W.A.C.:

58. The only other major change in the organizational set-up of the C.W.A.C., was created. In March the matter was discussed, and it appeared that the appointment of one officer to have seniority over all other C.W.A.C. officers was necessary and in the best interests of the Corps. The appointment was to be analogous to that of Matron-in-Chief, Nursing Service, R.C.A.M.C. in that the officer selected would act in an advisory capacity and concern herself with Corps matters generally. No change was to be made in existing administrative arrangements of the Corps. Lt-Col M.C. Eaton was chosen for the appointment and was given the acting rank of Col with effect from 24 Apr 44. The terms
of reference for the D.G., C.W.A.C., were as follows:

(a) The Director-General, C.W.A.C. is under the adjutant-General and is responsible to him for the well-being and efficiency of the C.W.A.C. as a Corps and of its personnel.

(b) On matters both of policy and administration affecting members of the C.W.A.C., the Director-General, C.W.A.C. has direct access to the Minister and Members of Army Council.

(c) The Director-General, C.W.A.C., will be consulted by all branches on matters of policy or administration whenever C.W.A.C. personnel are concerned.

(d) The duties and functions of the Director-General, C.W.A.C., will not alter the responsibility of the various Branches and Directorates of the Army for the training, administration, organization, spiritual and medical care, welfare, accommodation and clothing of the C.W.A.C. subject always however to the obligation to consult the Director-General.

59. On 10 Jun 44 C.M.H.Q. suggested that the senior C.W.A.C. officer at Headquarters in London, then Maj (later Lt-Col) E.A. Sorby, should fill an appointment known as Deputy Director, which should be authorized in place of the appointment of D.A.A.G. It was felt that such an appointment would better reflect the duties of this officer. Brig R.E.G. Roome, D.A.G.(O), pointed out that the authorization of a Deputy Director overseas would probably tend to widen any gap between C.W.A.C. in Canada and overseas, and suggested that the matter be left in abeyance pending a visit of the D.G., C.W.A.C., to England. After Col Eaton had surveyed the situation at C.M.H.Q. she recommended that some titlebe found for the Senior CWAC Officer Overseas, in order to help her function as she should. Accordingly it was agreed to create appointmets of Deputy Director at both C.W.A.C., at N.D.H.Q., assisting Col Eaton, was selected for the overseas appointment; and Lt-Col Eaton, was selected for the overseas appointment; and Lt-Col Sorby was returned from overseas to fill the Canadian appointment.

60. In September 1945, on the request of Lt-Col Cronyn to be retired, Maj H.J. Hunt was despatched overseas to become Senior C.W.A.C. Officer at C.M.H.Q. Lt-Col D.I. Royal, then in command of No 1 C.W.A.C.T.C., was posted to N.D.H.Q. to cover the vacancy of Deputy Director, C.W.A.C., following the retirement of Lt-Col Sorby.

61. Further changes in the senior staff officer appointments occurred during the following month. On 24 Oct 45 Col Eaton wrote to the D.A.G(A) as follows:

Consequent upon my relinquishment of the appointment of DG/CWAC, 29 Oct 45, and the wish of the Adjutant-General that the title of DG/CWAC lapse with my retirement, and regarding the necessity of appointing a Head to the Corps, I discussed with the Adjutant-General the three Senior Staff Appointments in CWAC, and the titles of these appointments. He was agreeable to the suggestion that the Senior CWAC Officer hold the appointment of Director, CWAC.

Col Eaton recommended the appointment of Lt-Col Royal as Director, C.W.A.C., of Maj P.H. Lee-Wright as Deputy Director, and of Maj Hunt as Deputy Director at C.M.H.Q. It was noted that this would necessitate a change in establishment and promotion of the three officers. As the policy then in effect was Ato discontinue or at least discourage promotion in Units or Corps where the strength during the next few months will be diminished, the D.A.G.(A) recommended that the appointment of D.G., C.W.A.C., be replaced by that of O.A., C.W.A.C., and that the Deputy Directors be known as Assistants to O.A., C.W.A.C. This recommendation was approved on 5 Nov 45.

62. On 19 Jan 46 Brig J.R.R. Gough, D.A.G.(B), wrote to Lt-Col Royal as follows:

In the past few months the name by which your appointment is known has changed from time to time and has been known as

(a) Officer Administering
(b) Executive Officer
(c) Staff Officer, CWAC
(d) Senior Officer, CWAC

In order to clarify your position in this regard, the writer discussed the matter with the Adjutant-General on the 18th Jan and the Adjutant-General has ruled that the appointment of the head of the CWAC Section at NDHQ shall in future be known as Staff Officer.

Lt-Col Royal retained this appointment until September 1946 when the C.W.A.C. ceased to function.