Something like that. In the pilot, they make a point of how it not part of the standard Star Fleet uniform, but Worf can wear it because it's such a special deal, how he's the first Klingon to be a bridge officer, etc. I assumed it was some kind of special Klingon thing that they'd allowed him to wear (imperfect analogy: when a Cub Scout achieves the Arrow of Light, the highest award, he gets to wear it on his Boy Scout uniform). But the first time other Klingons see it, they laugh at him and say "what the *%# is that?"