I seem to recall that the Accumulated Service Medal was lobbied for because of the many repeat visits to Northern Ireland that were not otherwise recognised.
O-D, as ever, you are correct.
One was in Whitehall when the ACSM was being staffed, and it was very much Army and NI driven. The argument could be (and often was!) summarised thus:
Flt Lt Flashheart flies one Harrier sortie in South Atlantic, one Buccaneer sortie in Lebanon, and one Tonka sortie in GW1 - result: 3 medals.
Pte Baldrick meanwhile, does 4 months in NI every other year for 20 years - result: 1 medal
Teeters
(GSM and 2 clasps (30 years apart!), ACSM and bar!)