Patriotic War.

[Eugene]

There is one from my collection. H&S made of steel and covered by brass.
There are few theories. I’ve heard from a couple experienced Russian collectors that some Patriotic War orders were made in city Chelyabinsk in 1943. Steel H&S were used instead of gold. There are no documents discovered and publish proving this theory.
On contrary, varieties of types with steel H&S (even suspension types were noticed) point there is no system. During the war gold H&S could be broken and lost. Replacement H&S could be used from hat badges, as Tal has mentioned. They had almost the same size.
All observed species tell they were not made at mint.