It’s Been 83 Years Since Canada Examined its Honours System

The last time Canada looked at its Honours System was during the Second World War and there are issues from neglect

In June 1942, the 19th Parliament established a Special Committee on Honours and Decorations to examine whether and how Canada should recognize Canadians fighting in Europe and the Pacific. This was 25 years before Canada would establish its own Honours System, and the Government of the day decided to allow the British Government to supply honours for Canadian veterans of World War II. Not once, since 1942 or the creation of Canada’s Honours System, has the government examined how one of Canada’s cultural institutions is being administered. The issues across multiple Departments reflect this neglect.

Canada’s Centennial arrived in 1967, and with it, the government introduced Canada’s new Honours System, celebrated with the induction of the Order of Canada. The Honours System is an integral part of Canada’s national identity, and although military members and veterans predominantly wear Honours, it is an institution that serves and benefits all Canadians. Canada’s Honours System is the responsibility of the Sovereign, whose power in Canada is represented by the Governor General, and the Prime Minister, who has Ministerial Responsibility for the Honours System. Since the creation of the Order of Canada, the Honours System has grown considerably under the care of the Chancellery of Honours. The Chancellery of Honours is administered by the Office of the Secretary to the Governor General (OSGG). The OSGG has delegated authority to the Department of National Defence (DND) to administer the Order of Military Merit and the administration of Service Medals, and the OSGG has delegated Veterans Affairs (VAC) to issue and reissue older Service Medals.

It shouldn’t be surprising to anyone that a system which hasn’t been evaluated by the government since before D-Day is failing to meet the demands of the modern military or modern recognition practices. Serving members, veterans, and advocates haven’t been silent either. Veterans of the Korean War had to fight until 1991 to receive the recognition for their service and sacrifices, and the tradition continues for veterans of the Gulf War and the War in Afghanistan. Former Conservative Minister of Veterans Affairs Erin O’Toole called for a parliamentary review of the Honours System after leaving Parliament in 2022, but his proposal failed to gain the support of Parliament.

Perhaps as Prime Minister Carney begins Canada’s 45^th Parliament, there is an opportunity to gain support. Especially if the government and cabinet intend to mend the social fabric of Canada, and especially if the Minister of National Defence intends to improve the military experience. However, support from MPs on both sides of the aisle would be necessary for such an endeavour to be successful.

The Order of Canada insignia for the Companion to the Order of Canada

The Challenges Facing the System

The issues in the Honours System range from the persistence of stolen valour, to toxic leadership at NDHQ, to backlogs at the Chancellery of Honours, to underrecognition of service. Issues persist in the nomination procedures within the CAF, stemming from nepotism in the chain of command or the unlikelihood of a successful application, which leaves leaders unwilling to make an attempt. And it is an institution that the government seems keen to ignore. Several grassroots petitions have called on the government to institute a Combat Action Badge, a Domestic Operations Medal, and the Canadian Volunteer Service Medal, as well as to award the Victoria Cross to certain Afghanistan veterans. However, the government has refused every single one to date.

The government’s refusal to strike medals for the 150^th Anniversary of Confederation in 2016 and for the Queen's Platinum Jubilee in 2022 is indicative of their disinterest. Commemorative Medals, such as Confederation and Jubilees, are an essential and impactful method of recognition for Canadians who go above and beyond in their communities. When the Canadian government refused to recognize Canadians, some provinces stepped up with their own Platinum Jubilee Medals.

Stolen Valour, which involves falsifying claims of military service by using Honours, awards, uniforms, or documents, persists despite being criminalized by the Criminal Code of Canada. It erodes the public’s trust in the military and veterans, as the perpetrators are bearing false witness and tarnishing the reputation of veterans with their lies. The false claims of gallantry and service are deeply offensive to those who have actually sacrificed in service. Worse still, the perpetrators of Stolen Valour are often committing fraud, seeking benefits reserved for veterans.

Veterans and serving members have been lamenting the lack of certain Honours from the system. Advocacy focuses on calls for the approval of wearing existing foreign medals alongside Canadian medals, such as the Kuwait Liberation Medal or the Cross for the Four Days Marches, as well as requests to establish new Honours, including the Combat Action Badge, a Domestic Operations Medal, or the Canadian Volunteer Service Medal. Canadian veterans are merely asking for recognition of their service and sacrifices to bring Canada in line with our allies, who already recognize the above services.

Advocates are also calling for reviews of the acts of gallantry that have gone under-recognized by NDHQ. Many cases of heroics in combat, which veterans believe should have been awarded the Victoria Cross, were awarded lesser Honours or none at all. Advocates argue this is part of the same issue, which makes it nearly impossible for junior members to be recognized for acts of heroism or extreme dedication, but quick to award senior officers and senior NCOs with Merit Decorations or Appointments to the Order of Military Merit for staff work. This is a part of the CAF’s retention problem; nepotism and under-recognition drive good people away instead of incentivizing them and encouraging job satisfaction.

What a Special Committee Could Accomplish in 2025

Parliament has numerous committees that enable members to study and oversee various aspects of the government. Standing Committees, such as the National Defence Committee and the Veterans Affairs Committee, study and report on the operations and conduct of the departments. Special Committees study issues of national importance and are dissolved after their study is complete. While DND and VAC are stakeholders with delegated authority, they do not administer the Honours System; the OSGG does. Additionally, the challenges also include weak language in the Criminal Code and Canadian Identity; therefore, the Standing Committees for National Defence and Veterans Affairs are not the appropriate venues for a study of the Honours System. A Special Committee, however, would enable the government to study and propose amendments to the Criminal Code, recommend the creation or authorization of Honours, review administrative and nomination procedures and practices at the DND and OSGG, and examine prior denials of Honours by the DND.

Advocates, veterans, and experts are already championing these issues and would bring valuable insights to a study: Dr. Christopher McCreery is a historian who has studied and written in depth about Canada’s Honours System, his books “The Beginners Guide to Canadian Honours” and “The Canadian Honours System” are undeniably the best resources for studying the why’s and history of the System; the team at Stolen Valour Canada are volunteers evaluating and reporting suspected cases of stolen valour to police services, their expertise in the shortcomings of section 419 of the Criminal Code and the persistence and effects of stolen valour are without equal; Bruce Moncor at Valour in the Presence of the Enemy is leading the charge chronicling the under recognition of the bravest of the brave, his insights and knowledge of veterans who have raised the bar for all others bring honour where Honours are lacking; Ryan Gingras of Mission Recognition has shown the military community that there are methods and benefits to creating new Honours to recognize the modern battlefield and service conditions; and, Kyle Scott's Canadian Veterans Owed or Missing Medals is bringing honour to veterans who haven’t been adequately recognized or lost their Honours, he is at the tip of the spear for assisting veterans and deals frequently with the relevant agencies and backlogs.

Eighty years of neglect by the government have allowed minor issues to fester into serious morale issues within the military community. The prevalence of stolen valour impacts the well-being and credibility of veterans. The underrecognition of service impacts the morale and retention of the Canadian Armed Forces. Delays and outdated policies at the Chancellery of Honours leave dedicated Canadians unrecognized for their devotion. Eighty years is far too long for the government to continue ignoring this institution.