Canada – Nova Scotia Early Learning and Child Care Agreement – 2021 to 2025
Official title: Canada – Nova Scotia Early Learning and Child Care Agreement
List of abbreviations
- APP
- Advanced Practitioner Program
- ECDIS
- Early Childhood Development Intervention Services
- ECE
- Early Childhood Educators
- ECEWG
- Early Childhood Educators Working Group
- ECP
- Early Childhood Program
- EDI
- Early Development Instrument
- EECD
- Department of Education and Early Childhood Development
- ELCC
- Early Learning and Child Care
- ELCCA
- Early Learning and Child Care Agreement
- ISG
- Inclusion Support Grant
- IQCG
- Infant Quality Care Grant
- NSCECE
- Nova Scotia College of Early Childhood Education
- NS
- Nova Scotia
- PM
- Pyramid Model
- QIP
- Quality Improvement Program
- RPL
- Recognition of prior learning
Canada – Nova Scotia Early Learning and Child Care Agreement
Between:
- Her Majesty the Queen in Right of Canada (hereinafter referred to as “Canada” or “Government of Canada”) as represented by the Minister of Employment and Social Development Canada (“Canada”) and as represented by the Minister of Families, Children and Social Development (herein referred to as “the federal Minister”), and
- Her Majesty the Queen in Right of Nova Scotia (hereinafter referred to as “Nova Scotia” or “Government of Nova Scotia”) as represented by the Minister of Education and Early Childhood Development (herein referred to as “the provincial Minister”)
Referred to collectively as the “Parties”.
Preamble
Whereas, Canada and Nova Scotia agreed to a Multilateral Early Learning and Child Care Framework on June 12, 2017 which articulated their shared vision for early learning and child care and describes their approach to achieve this vision.
Whereas, the Department of Employment and Social Development Act authorizes the federal Minister to enter into agreements with the provinces and territories, for the purpose of facilitating the formulation, coordination and implementation of any program or policy within the mandate of the Department of Employment and Social Development Act.
Whereas, the Public Service Act authorizes the provincial Minister to enter into agreements with the Government of Canada under which Canada undertakes to provide funding toward costs incurred by the Government of Nova Scotia for the provision of Early Learning and Child Care (“ELCC”) programs and services.
Whereas, Canada has, pursuant to its Policy on Transfer Payments, established a transfer payment program to provide funds to the provincial and territorial governments for the development and delivery of regulated early learning and child care programs and services for children under 6 years of age, with consideration for families more in need.
Whereas, Canada and the Assembly of First Nations, Inuit Tapiriit Kanatami, the Métis National Council jointly released the co-developed Indigenous ELCC Framework in September 2018, which establishes overarching principles and sets a vision for happy and safe Indigenous children and families, strong cultural identity, and a comprehensive and coordinated system that is anchored in self-determination, and centered on children and grounded in culture, and can be used as a guide for all actors involved in Indigenous ELCC.
Whereas, Nova Scotia invests in early learning and child care for Indigenous children.
Whereas, the Canada-Nova Scotia Early Learning and Child Care Agreement was signed on January 10, 2018 and extended by one year on December 11, 2020, “the Agreement”.
Whereas, in accordance with section 3.0 of the Agreement, Canada and Nova Scotia wish to extend the Agreement for a period of 4 years commencing April 1st 2021 and ending March 31, 2025, on the same terms and conditions as in the Agreement, save and except for amendments as provided herein.
Whereas, intentions to extend the Agreement were stated in writing and negotiations had commenced prior to the expiry of the fiscal year 2020 to 2021 Agreement.
Whereas, Canada and Nova Scotia will continue to work together towards establishing a Canada-wide child care system.
Now therefore, Canada and Nova Scotia agree as follows.
1.0 Vision for early learning and child care
1.1 Canada and Nova Scotia agree that the long term vision, principles and objectives for early learning and child care, which are set out in the Multilateral Early Learning and Child Care Framework that is attached as Annex 1, will guide the investment of funds provided under this Agreement.
2.0 Early learning and child care objectives and areas of investment
2.1 Objectives
2.1.1 Canada and Nova Scotia agree that over the period of this Agreement, with financial support from Canada, Nova Scotia will further build its early learning and child care system by addressing local, regional and system priorities that have an impact on families more in need by increasing the quality, accessibility, affordability, flexibility and inclusivity in early learning and child care, towards achieving the objectives of:
- making child care more accessible and affordable for Nova Scotian families
- supporting quality through workforce development
- imbedding inclusion in early learning and child care environments
Nova Scotia’s policy towards early learning and child care and approach to achieving these objectives is set out in the Nova Scotia action plan attached as Annex 2.
2.1.2 Canada and Nova Scotia agree that in fiscal year 2021 to 2022, Canada will provide a one-time contribution to Nova Scotia that will be used to support the recruitment and retention of the early childhood workforce, in accordance with Annex 3.
2.2 Eligible Areas of Investment
2.2.1 Nova Scotia agrees to prioritize funds provided by Canada under this Agreement in regulated early learning and child care programs and services for children under the age of 6 where:
- regulated programs and services are defined as those that meet standards that are established and/or monitored by provincial/territorial governments
- early learning and child care programs and services are defined as those supporting direct care and early learning for children in settings including, but not limited to, regulated child care centres, regulated family child care homes, early learning centres, preschools and nursery schools
2.2.2 In developing and delivering its early learning and child care programs and services, Nova Scotia agrees to take into account the needs of official language minority communities in Nova Scotia.
2.2.3 Acceptable investments under this agreement may include, but are not limited to:
- capital and operating funding for regulated early learning and child care, fee subsidies, training, professional development and support for the early childhood workforce
- quality assurance
- parent information and referral, and
- certain administration costs incurred by Nova Scotia in implementing and administering this Agreement
2.2.4 Canada and Nova Scotia also agree to promote, define, and deliver identifiable innovative approaches to enhance the quality, accessibility, affordability, flexibility, and inclusivity of early learning and child care systems, with consideration for those more in need.
2.2.5 Canada and Nova Scotia agree that funding will be targeted toward regulated programs and services and activities, as described above, for children under the age of 6, that will have an impact on families more in need such as:
- lower-income families, Indigenous families, lone-parent families, families in underserved communities
- those families with caregivers who work non-standard hours
- racialized Canadian families including Black Canadian families
- children with disabilities and children needing enhanced or individual supports
Needs also include having limited or no access to early learning and child care programs and services in the children’s official language.
2.2.6 In fiscal year 2021 to 2022, under extraordinary circumstances, Nova Scotia may allocate funding under this agreement to support short-term measures to minimize the impacts of COVID-19 on Nova Scotia’s ELCC system. These measures must be aligned with the principles of the Multilateral ELCC Framework and be used to sustain ELCC programs and services.
3.0 Period of Agreement
3.1 This Agreement shall come into effect upon the last signature being affixed and will remain in effect until the earlier of March 31, 2025, or the effective date of a successor agreement, unless terminated in writing by Canada or Nova Scotia in accordance with the terms hereof in section 11. Funding provided under this Agreement, in accordance with section 4, will cover the period from April 1, 2021 to March 31, 2025.
3.2 Extension of bilateral agreements
3.2.1 Canada commits that the total annual allocation for all provinces and territories for the period of fiscal year 2025 to 2026 to fiscal year 2027 to 2028 will be no less than the total annual allocation for all provinces and territories for the fiscal year covered under the fiscal year 2020 to 2021 agreement. Funding during the fiscal year 2025 to 2026 to fiscal year 2027 to 2028 period will be provided upon the extension of bilateral agreements conditional on Canada’s acceptance of new action plans and informed by the assessment of the results achieved under the action plan set out in Annex 2.
3.2.2 The extension will provide the Nova Scotia and Canada the opportunity to review and course correct, if required, and realign new priorities in future bilateral agreements based on progress made to date.
3.2.3 In the event this bilateral agreement is extended in accordance with the terms of section 3.2.1, Nova Scotia may continue to use funding provided thereunder to cover the same eligible areas of investment as those covered through funding received for the period of fiscal year 2021 to 2022 to fiscal year 2024 to 2025 subject to the terms and conditions of that extended agreement.
4.0 Financial Provisions
4.1 These contributions are in addition and not in lieu of those that Canada currently pays to Nova Scotia through the Canada Social Transfer in order to support early childhood development and early learning and child care within Nova Scotia.
4.2 Allocation to Nova Scotia
4.2.1 Canada has designated the following maximum amounts to be transferred in total to all provinces and territories under this initiative with a fixed base rate of $2 million per year for each province and territory and the balance of the funding on a per capita basis for the period starting on April 1, 2021 and ending on March 31, 2025.
- $399,347,694 for the fiscal year beginning on April 1, 2021
- $524,347,694 for the fiscal year beginning on April 1, 2022
- $565,847,694 for the fiscal year beginning on April 1, 2023
- $565,847,694 for the fiscal year beginning on April 1, 2024
4.2.2 Subject to annual adjustment based on the formula described in section 4.2.3, Nova Scotia’s estimated share of the amounts described in section 4.2.1 will be as follows.
Table 1: Estimated amount to be paid to Nova Scotia
| Fiscal year | Estimated amount to be paid to Nova Scotia* (subject to annual adjustment) |
|---|---|
| 2021 to 2022 | $11,620,738 |
| 2022 to 2023 | $14,841,843 |
| 2023 to 2024 | $15,911,250 |
| 2024 to 2025 | $15,911,250 |
*Amount represents annual estimates based on Statistics Canada population estimates.
4.2.3 The final yearly amount to be paid to Nova Scotia will be calculated using the following formula F x K/L, where:
- F is the annual total funding amount transferred to provinces and territories minus the base funding
- K is the total population of Nova Scotia, as determined using annual population estimates from Statistics Canada
- L is the total population of Canada, as determined using annual population estimates from Statistics Canada
4.2.4 For the purposes of the formula in section 4.2.3, the population of Nova Scotia for each fiscal year and the total population of all provinces and territories for that fiscal year are the respective populations as determined on the basis of the quarterly preliminary estimates of the respective populations on July 1 of that fiscal year released in September of that fiscal year by Statistics Canada.
4.3 In this Agreement, “fiscal year” means the period commencing on April 1 of any calendar year and terminating on March 31 of the immediately following calendar year.
4.4 Payment
4.4.1 Subject to Parliamentary approval of appropriations, Canada’s contribution will be paid in approximately equal semi-annual installments as follows.
4.4.2 In fiscal year 2021 to 2022, the first installment will be paid, on or about June 15, or alternatively, within 30 days after the signatures from both Parties are affixed to the Agreement. The second installment will be paid on or about November 15 of each fiscal year.
4.4.3 Beginning in fiscal year 2022 to 2023, the first installment will be paid on or about June 15 of each fiscal year.
4.4.4 The amount of the first installment will be an amount equal to 50% of the notional amount of Canada’s maximum contribution to Nova Scotia for the fiscal year, which will be calculated in the manner described in sections 4.2.3 and 4.2.4.
4.4.5 The amount of the second installment will be an amount equal to the balance of Canada’s contribution to Nova Scotia for the fiscal year based on the actual amount of the contribution determined under sections 4.2.3 and 4.2.4 for the fiscal year.
4.4.6 Canada will notify Nova Scotia at the beginning of each fiscal year of their notional amount. The notional amount will be based on the Statistics Canada quarterly preliminary population estimates on July 1 of the preceding fiscal year. Canada will notify Nova Scotia of the actual amount of the second installment in each fiscal year as determined under the formula set out in section 4.2.3 as soon as possible following the release in September of each year of the Statistics Canada quarterly preliminary population estimates referred to in section 4.2.4.
4.4.7 Starting in fiscal year 2022 to 2023, Canada shall withhold payment of its first installment for each fiscal year if Nova Scotia has failed to provide its annual action plan in respect of that fiscal year in accordance with section 5.1.3 until such time as the annual action plan is provided.
4.4.8 In fiscal year 2021 to 2022, Canada shall withhold payment of its second installment for that fiscal year until Nova Scotia provides its annual audited financial statement of the last fiscal year covered by the Agreement signed in 2020 in accordance with section 5.2.1 (d) of that Agreement.
4.4.9 Beginning in fiscal year 2022 to 2023, Canada shall withhold payment of its second installment for the fiscal year if Nova Scotia has failed to provide its annual audited financial statement for the previous fiscal year in accordance with section 5.2.1 (d) until such time as the annual audited statement is provided.
4.4.10 The sum of both semi-annual installments of Canada’s funding for a fiscal year constitutes a final payment for that fiscal year and is not subject to any further adjustment once the second installment of that fiscal year has been paid.
4.4.11 Payment of Canada’s funding for each fiscal year of this Agreement is subject to an annual appropriation by the Parliament of Canada for this purpose.
4.5 Maximum annual contribution in respect of administration costs
4.5.1 Canada’s contribution in respect of Nova Scotia’s administration costs referred to in section 2.2.3 and 2.3 of Annex 3 shall not exceed:
- in the fiscal years covered under this Agreement an amount of up to or equal to 10% of the maximum amount payable for those fiscal years
4.6 Carry forward
4.6.1 At the request of Nova Scotia and subject to the approval of Canada's Treasury Board, Nova Scotia may retain and carry forward to the following fiscal year, any unexpended funds remaining from Nova Scotia’s annual funding paid under section 4.2.3, up to a maximum of 10% of the contribution paid. Any unexpended funds in excess of 10% of the contribution paid represents an overpayment subject to section 4.7.
4.6.2 Nova Scotia may only use the amount carried forward to the following fiscal year for expenditures in the eligible areas of investment made under section 2.2 incurred that fiscal year.
4.6.3 For greater certainty, any unexpended funds remaining from Nova Scotia’s annual funding paid under section 4.2.3, up to a maximum of 10% of the contribution paid to Nova Scotia in the last year of the Agreement signed in 2020, is eligible for carry forward to the first year of this Agreement.
4.6.4 For greater certainty, any amount carried forward under section 4.6.1 is supplementary to the maximum amount payable to Nova Scotia under section 4.2.3 of this Agreement during the fiscal year in which the funding is carried forward.
4.6.5 All amounts carried forward to the next fiscal year, pursuant to section 4.6.1 must be spent by the end of that fiscal year. Nova Scotia is not entitled to retain any such carried forward amounts that remain unexpended after the end of that fiscal year, nor is it entitled to retain any balance of Canada's contribution paid pursuant to section 4.2.3 that remains unexpended at the end that fiscal year and is not carried forward in accordance with section 4.6.1. Such amounts are considered debts due to Canada and shall be repaid in accordance with section 4.7.
4.7 Repayment of overpayment
4.7.1 In the event payments made to Nova Scotia exceed the amount to which Nova Scotia is entitled under the Agreement, the amount of the excess is a debt due to Canada and shall be repaid to Canada upon receipt of notice to do so and within the period specified in the notice.
4.7.2 Canada shall, in addition to any other remedies available, have the right to recover the debt by deducting or setting-off the amount of the debt from any future contribution payable to Nova Scotia under this Agreement.
4.8 Use of funds
4.8.1 Canada and Nova Scotia agree that funds provided under this Agreement will only be used by Nova Scotia in accordance with the areas for investment outlined in section 2.2 of this Agreement.
4.8.2 Canada and Nova Scotia agree that, within each fiscal year of the period of this Agreement, Nova Scotia may move funding between the individual programming categories outlined in its Action Plan in Annex 2 to ensure the maximum use of funding. Nova Scotia agrees to notify Canada in writing of any such change in funding allocation, including the rationale for the change.
5.0 Accountability
5.1 Action plan
5.1.1 Nova Scotia has completed and shared its action plan for fiscal year 2021 to 2022 of federal funding with Canada, as set out in the Agreement. Upon signature of this Agreement by both Parties, Nova Scotia will publicly release their action plan which:
- identifies specific priority areas for investment and objectives, within the Framework’s parameters, which builds upon the progress to date, including maintaining and building on the more affordable spaces created under the fiscal year 2017 to 2018 to fiscal year 2020 to 2021 Agreement, and further enhancing the quality, accessibility, affordability, flexibility and/or inclusivity of their early learning and child care system, with consideration for those more in need
- describes how Nova Scotia plans to address the early learning and child care needs of its children/families more in need, including families that have limited access to programs and services in their official language; racialized Canadians including Black Canadians; and children with disabilities and children needing enhanced or individual supports
- outlines their planned innovation spending
- demonstrates and confirms that federal investments will be incremental, and will not displace existing Nova Scotia early learning and child care spending, in particular spending dedicated to Indigenous populations
- outlines the indicators that will be reported on annually according to their planned investments
- identifies specific targets for each indicator that will be reported on annually for tracking progress in relation to the objectives of the Agreement
- identifies additional jurisdiction-specific indicators for tracking progress in relation to the objectives of the Agreement
- a description of consultation processes referred to in section 5.1.2, the type of groups consulted and annual priorities related to stakeholder feedback
5.1.2 Nova Scotia will consult with parents, child care providers, experts, Indigenous peoples, official language minority communities and other interested Canadians as an important step in developing and revising its action plan.
5.1.3 By May 1 of each fiscal year during the period of this Agreement, starting in fiscal year 2022 to 2023, Nova Scotia agrees to share with Canada an annual action plan. The annual action plan shall include the elements described in section 5.1.1 a) to h). Once the Parties agree that the annual action plan is final, it may be published by one or both of the Parties.
5.2 Reporting
5.2.1 By no later than October 1 of each fiscal year during the Period of this Agreement, Nova Scotia agrees to:
- report to Canada on the results and expenditures of early learning and child care programs and services attributable to the funding provided by Canada under this Agreement
- continue to provide to Canada data required for the publication of the joint federal-provincial/territorial report on public investments in early childhood education and care in Canada. This shall include the number of children benefiting from subsidies, number of licensed early learning and child care spaces broken down by age of child and type of setting
- provide to Canada an annual report in the format and manner decided jointly by Canada and Nova Scotia. The report shall show separately the results attributable to the funding provided by Canada under this Agreement and shall include:
- brief description of the activities, expenditures and results of the Agreement as set out in Annex 2
- results achieved according to the indicators and targets referred to in Annex 2
- the impact on families referred to in Annex 2
- results achieved on innovation referred to in Annex 2
- description of consultation processes, the type of groups consulted and annual priorities related to stakeholder feedback referred to in Annex 2
- any additional results of evaluation activities undertaken in the fiscal year, as available
- provide to Canada an audited financial statement of revenues received from Canada under this Agreement during the fiscal year:
- the revenue section of the statement shall show the amount received from Canada under this Agreement during the fiscal year
- the total amount of funding used for ELCC programs and services under section 2.2
- the administration costs incurred by Nova Scotia in developing and administering ELCC programs under section 2.2.3
- if applicable, the amount of any amount carried forward by Nova Scotia under section 4.6
- if applicable, the amount of any surplus funds that are to be repaid to Canada under section 4.7
The financial statement shall be prepared in accordance with Canadian Generally Accepted Accounting Principles and the audit shall be performed by the Nova Scotia Auditor General or his/her delegate, or by an independent public accounting firm registered under the laws of Nova Scotia and shall be conducted in accordance with Canadian Generally Accepted Auditing Standards.
5.2.2 Canada, with prior notice to Nova Scotia, may incorporate all or any part or parts of the said report into any public report that Canada may prepare for its own purposes, including any reports to the Parliament of Canada or reports that may be made public.
5.3 Audit
5.3.1 Nova Scotia will ensure that expenditure information presented in the annual report is, in accordance with Nova Scotia’s standard accounting practices, complete and accurate.
5.4 Evaluation
5.4.1 As per established policies and processes with respect to program effectiveness, Nova Scotia may evaluate programs and services receiving funds provided under this Agreement at the request of Canada and make public the results of any such evaluations.
6.0 Long-term collaboration
6.1 Canada and Nova Scotia agree to share and release data as available, and knowledge, research and information on effective and innovative practices in early learning and child care, to further support the development of and reporting on quality and outcomes. Canada and Nova Scotia agree to work together, and with stakeholders, towards the development of common quality and outcome measures that could be included in bilateral agreements in the future that could reinforce the Framework’s long-term vision.
6.2 Canada and Nova Scotia agree to work together to improve data collection and dissemination on key early learning and child care information for children under age 6.
7.0 Communications
7.1 Canada and Nova Scotia agree on the importance of communicating with citizens about the objectives of this Agreement in an open, transparent, effective and proactive manner through appropriate public information activities.
7.2 Each government will receive the appropriate credit and visibility when investments financed through funds granted under this Agreement are announced to the public.
7.3 Canada agrees to give Nova Scotia 10 days advance notice of public communications related to the Framework, bilateral agreements, and results of the investments of this Agreement.
7.4 Nova Scotia agrees to give Canada 10 days advance notice and advance copies of public communications related to the Framework, bilateral agreements, and results of the investments of this Agreement.
7.5 Canada reserves the right to conduct public communications, announcements, events, outreach and promotional activities about the Framework and bilateral agreements.
8.0 Dispute resolution
8.1 Canada and Nova Scotia are committed to working together and avoiding disputes through government-to-government information exchange, advance notice, early consultation, and discussion, clarification, and resolution of issues, as they arise.
8.2 If at any time either Canada or Nova Scotia is of the opinion that the other Party has failed to comply with any of its obligations or undertakings under this Agreement or is in breach of any term or condition of the Agreement, Canada or Nova Scotia, as the case may be, may notify the other party in writing of the failure or breach. Upon such notice, Canada and Nova Scotia will endeavour to resolve the issue in dispute bilaterally through their Designated Officials.
8.3 If a dispute cannot be resolved by Designated Officials, then the dispute will be referred to the Deputy Ministers most responsible for early learning and child care, and if it cannot be resolved by them, then the respective federal Minister and Nova Scotia Minister shall endeavour to resolve the dispute.
9.0 Amendments to the agreement
9.1 This Agreement, including all attached annexes, except Annex 1, may be amended at any time by mutual consent of the Parties. To be valid, any amendments shall be in writing and signed by the Parties.
9.2 Waiver
9.2.1 Failure by any Party to exercise any of its rights, powers, or remedies under this Agreement or its delay to do so does not constitute a waiver of those rights, powers, or remedies. Any waiver by either Party of any of its rights, powers, or remedies under this Agreement must be in writing; and, such a waiver does not constitute a continuing waiver unless it is so explicitly stated.
10.0 Equality of treatment
10.1 During the term of this Agreement, if another province or territory, except the province of Quebec, which is not part of the Framework, negotiates and enters into an Early Learning and Child Care Agreement with Canada, or negotiates and enters into an amendment to such an agreement and if, in the reasonable opinion of Nova Scotia, any provision of that agreement or amended agreement is more favourable to that province or territory than terms set forth in this Agreement, Canada agrees to amend this Agreement in order to afford similar treatment to Nova Scotia, if requested by Nova Scotia. This includes any provision of the bilateral agreement except for the Financial Provisions set out under section 4.0. This amendment shall be retroactive to the date on which the Agreement or the amendment to such an Agreement with the other province or territory, as the case may be, comes into force.
10.2 Canada will make publicly available up-to-date Early Learning and Child Care Agreements entered into with all provinces and territories, including any amendments, by posting them on a Government of Canada website.
11.0 Termination
11.1 Canada may terminate this Agreement at any time if the terms of this Agreement are not respected by Nova Scotia by giving at least 12 months written notice of its intention to terminate.
11.2 As the effective date of termination of this Agreement under section 11.1, Canada shall have no obligation to make any further payments to Nova Scotia after the date of effective termination.
12.0 Notice
12.1 Any notice, information or document provided for under this Agreement will be effectively given if delivered or sent by letter, postage or other charges prepaid. Any notice that is delivered will have been received in delivery; and, except in periods of postal disruption, any notice mailed will be deemed to have been received 8 calendar days after being mailed.
The address for notice or communication to Canada shall be:
Social Policy Directorate140 Promenade du Portage
Gatineau QC K1A 0J9
NC-SSP-ELCC-GD@hrsdc-rhdcc.gc.ca
The address for notice or communication to Nova Scotia shall be:
Department of Education and Early Childhood Development4th floor, 2021 Brunswick Street
Halifax NS B3J 2S9
EarlyYears@novascotia.ca
13.0 General
13.1 This Agreement, including Annexes 1, 2, and 3 comprise the entire agreement entered into by the Parties with respect to the subject matter hereof.
13.2 This Agreement is based on the Multilateral Early Learning and Child Care Framework, Annex 1, concluded on June 12, 2017.
13.3 This Agreement shall be interpreted according to the laws of Canada and Nova Scotia.
13.4 No member of the House of Commons or of the Senate of Canada or of the Legislature of Nova Scotia shall be admitted to any share or part of this Agreement, or to any benefit arising therefrom.
13.5 If for any reason a provision of this Agreement that is not a fundamental term is found by a court of competent jurisdiction to be or to have become invalid or unenforceable, in whole or in part, it will be deemed to be severable and will be deleted from this Agreement, but all the other provisions of this Agreement will continue to be valid and enforceable.
13.6 This Agreement is drafted in English at the request of the Parties.
Signed on behalf of Canada by the Minister of Employment and Social Development Canada (“Canada”) and as represented by the Minister of Families, Children and Social Development Ottawa this 9th day of July, 2021.
[Signed by] the Honourable Ahmed Hussen, Minister of Families, Children and Social Development
Signed on behalf of Nova Scotia by the Minister of Education and Early Childhood Development at Halifax this 7th day of July, 2021.
[Signed by] the Honourable Derek Mombourquette, Minister of Education and Early Childhood Development.
Annex 1 : Multilateral Early Learning and Child Care Framework
Federal, Provincial and Territorial Ministers Most Responsible for Early Learning and Child Care agree on the importance of supporting parents, families and communities in their efforts to ensure the best possible future for their children. For more details, please consult the Multilateral Early Learning and Child Care Framework.
Annex 2 : Nova Scotia’s action plan for fiscal year 2021 to 2022
In this section
Due to the COVID-19 pandemic, Nova Scotia’s ability to deliver on the initiatives outlined in fiscal year 2021 to 2022 action plan may be affected. As such, the targets may not be achieved and expenditures may differ.
Introduction
The Province of Nova Scotia is committed to a vision where all children in Nova Scotia have access to high-quality, affordable, and inclusive early learning and child care programs.
Over the last number of years, Nova Scotia has been moving forward with transformation of the early learning and child care sector based on this vision. Since 2017, funding from the Early Learning and Child Care Agreement (ELCCA) has allowed Nova Scotia to move forward with a number of actions focused on quality, best practice, inclusion, and innovation in early learning. The 2017 to 2021 ELCCA action plan was based on the direction for early learning and child care in Nova Scotia, as set out in the release of the 2016 action plan, Affordable, Quality Child Care: A Great Place to Grow! The addition of child care spaces and enhancements to the Child Care Subsidy Program have impacted the accessibility and affordability of child care opportunities. Child care staff have been supported in accessing additional training opportunities, ranging from supports to access diploma training, as well as various professional development opportunities.
Through fiscal year 2021 to 2022 ELCCA action plan, Nova Scotia will continue to support ongoing initiatives announced in previous years of the ELCCA. In addition, Nova Scotia is moving forward with additional initiatives that will best position the province to implement a universal early learning and child care system. New action plan items include an expanded focus on infant care through the Infant Quality Care Grant (an educational enhancement to the previous Infant Incentive Grant), as well as a workforce initiative that will support current staff in the early learning and child care sector to receive a diploma through an accelerated early childhood education diploma program.
Below is an update of the fiscal year 2021 to 2022 plan, including continued funding of initiatives from the original agreement (section 1) and an overview of new initiatives (section 2).
Section 1: Fiscal year 2021 to 2022 continuing action plan initiatives
The summary table below provides information on previous action plan initiatives that will continue to be funded in fiscal year 2021 to 2022.
The Department of Education and Early Childhood Development (EECD) will continue to monitor ongoing ELCCA funded initiatives to determine if they are meeting the intended outcomes. If it is determined that initiatives are not meeting the originally intended outcomes, a planned abandonment approach will be used. It is expected that as Nova Scotia works with the Government of Canada on a Canada-wide early learning and care system, there may need to be adjustments to current funded priorities to reflect the advancements made in a universal system, such as adjustments in per diem rates for child care subsidy for example. Any adjustments will be made as part of future ELCCA agreements.
Table 2 : Enhancements to the Child Care Subsidy Program
Note: This table was modified for accessibility reasons.
| Initiative | Principle(s) supported | Funding | Indicator(s) | Target(s) |
|---|---|---|---|---|
| Enhancements to the Child Care Subsidy Program | Priority 1: making child care more accessible and affordable for Nova Scotian families | $5,200,000 |
|
|
Federal investments have enabled more families to access increased financial support to pay for child care. Through investments in the Child Care Subsidy Program, the turning point was increased from an annual income of $25,000 to $35,000. In addition, the Assessed Daily Parent Fee sliding scale, used to calculate the amount of subsidy an eligible family will receive, was adjusted for all income levels up to the break-even point of $70,080 per year, enabling families to receive a higher subsidy rate. As well, the subsidy program was expanded for families who require flexible and part-time care.
Fiscal year 2021 to 2022 funding will be used to maintain these changes in the program to ensure that families continue to have access to affordable child care.
Table 3: Strategic Growth of the Regulated Child Care System
Note: This table was modified for accessibility reasons.
| Initiative | Principle(s) supported | Funding | Indicator(s) | Target(s) |
|---|---|---|---|---|
| Strategic growth of the regulated child care system | Priority 1: making child care more accessible and affordable for Nova Scotian families |
|
|
|
Nova Scotia’s strategic growth plan has improved accessibility to regulated child care across Nova Scotia. This investment has increased the number of child care spaces in underserved communities, which were identified using criteria such as population demographics, Early Development Instrument results, current usage of child care spaces and results of the recent consultation with families across Nova Scotia. The initiative also focused on the development of infant and toddler spaces.
Federal investment will continue to provide operational funding for the new child care centres, the new child care centre spaces, and the new family home child care provider sites, operating under licensed family home child care agencies, which were created under the strategic growth plan. The ratio of for-profit to not-for-profit child care centres created under strategic growth is 50/50.
Family home child care agencies are a part of the regulated child care sector in Nova Scotia. Each of the currently 14 agencies are licensed by the Department of Education and Early Childhood Development, Early Learning and Child Care Branch. The licensing process includes inspection of each agency and its affiliated child care homes. Agencies recruit, approve, and monitor care providers who wish to operate a family home child care small business. Of the 14 agencies, 5 are for-profit and 9 and not-for profit.
Family home child care agencies are located throughout Nova Scotia. Families living in urban areas have opportunity to choose between numerous child care options such as centre based and family home child care. The majority of family home child care agencies (9 of 14) are located in rural areas of the province where such options are not available. When reviewing an application for a new agency, EECD considers priority areas of the province as identified through consultation with families and child care providers, population demographics and density, Early Development Instrument results, the current distribution of regulated child care spaces and utilization rates, and collaboration with community early years networks. Of the 11 priority counties identified through this process, all have access to a family home child care agency.
Table 4: Professional development
Note: This table was modified for accessibility reasons.
| Initiative | Principle(s) supported | Funding | Indicator(s) | Target(s) |
|---|---|---|---|---|
| Professional development | Priority 2: supporting quality through workforce development | $125,000 | Number of ECEs engaged in professional development | 1,000 ECEs engaged in professional development |
ELCCA funding will be used to continue to support the professional development of ECEs on the Early Learning Curriculum Framework for staff in early learning and child care programs, including the delivery of online professional development modules. As well, funds will be used to offer professional development opportunities for family home child care, to develop and distribute early childhood education resources to support staff and care providers in early learning and child care, and to provide enhancements to the Early Learning Curriculum Framework and Educators’ Guide.
Table 5: Recognition of prior learning
Note: This table was modified for accessibility reasons.
| Initiative | Principle(s) supported | Funding | Indicator(s) | Target(s) |
|---|---|---|---|---|
| Recognition of prior learning (RPL) | Priority 2: supporting quality through workforce development | $5,542 | Number of individuals engaged in RPL process | 40 individuals engaged in RPL process |
To support the required growth in the number of qualified Early Childhood Educators, the Province worked with partners to introduce a Recognition of Prior Learning Initiative. This initiative supports individuals working in child care, some for many years, without formal credentials by assessing their knowledge through a competency-based assessment process. This rigorous assessment process enabled individuals to demonstrate they have acquired knowledge through their prior experience. A RPL process, in any profession, typically results in a 50 to 60% success rate and can provide valuable information on areas of strength and areas to engage in professional development.
The RPL initiative was developed and piloted in fiscal year 2019 to 2020, using ELCCA funding. Initially, it was proposed that 140 people would be engaged in this process. The interest was greater than expected, with 154 individuals applying to participate in the pilot. From this group, a cohort of 82 were approved for assessment and 41 (50%) were successful. These 41 individuals demonstrated they had the knowledge required to obtain a Level 2 classification in Nova Scotia, the classification awarded to those who have completed a 2-year early childhood education diploma program.
In fiscal year 2021 to 2022, funding will support the ongoing delivery of the RPL program by covering part of the application/assessment and exam fees to reduce the overall costs for applicants.
Table 6: Pyramid model
Note: This table was modified for accessibility reasons.
| Initiative | Principle(s) supported | Funding | Indicator(s) | Target(s) |
|---|---|---|---|---|
| Pyramid model (PM) | Priority #3: imbedding inclusion in early learning and child care environments | $541,971 |
|
|
Under the 2017 to 2020 ELCCA, Nova Scotia introduced the Pyramid Model for Promoting Social Emotional Competence in Infants and Young Children, which provides a framework of evidence-based practices for promoting social emotional and behavioural development. This initiative was specifically developed for use in early learning and child care environments. Pyramid Model Coaches began implementation of the first cohort in December 2018, working with 22 child care centres to implement the Pyramid Model Program. Currently, there are 20 implementation sites engaged in the Pyramid Model Programs first cohort. It can take 2 to 5 years for a site to attain program-wide implementation of the Pyramid Model.
Funding is required annually to support the ongoing administration of the Pyramid Model initiative in regulated child care. Funding provided to the Pyramid Model will support:
- maintaining 8 Pyramid Model coaches and one coach team lead: salary and benefits, as well as travel expenses
- evaluation and data management support: ensuring information flows to coaches and the Provincial Leadership Team to enhance data driven decision making at the centre and provincial level
- training, materials and resources: development and dissemination of pyramid model implementation materials through the creation of reports, info graphics and other communication tools for community stakeholders, early childhood educators, programs and families
In fiscal year 2021 to 2022, EECD will begin the Pyramid Model implementation process in second cohort of 10 new child care sites, including 5 lab school sites. Lab schools serve as a model of educational practice for students in post-secondary early childhood education training programs. Implementing the Pyramid Model in these sites is critically important, as it introduces a new generation of students to Pyramid Model principles and practices.
Also in fiscal year 2021 to 2022, 6 Pyramid Model sites will reach program-wide implementation. In program-wide implementation, a leadership team guides the implementation process and develops the supports and infrastructure needed to ensure that implementation of the Pyramid Model can occur within all learning environments and services provided to children and their families. The program-wide implementation model ensures that programs are attending to both the implementation of evidence-based practices and the development of the infrastructure to support the durable implementation of those practices.
Of the 6 sites reaching program-wide implementation, one site will reach demonstration level. This site will achieve program-wide fidelity of implementation of Pyramid Model practices, with practices that are well-integrated into the repertoire of all educators and routinely and effectively supported by continued professional development and administrative support. The Pyramid Model demonstration site will serve as an exemplar of the Pyramid Model in action.
Through the continued implementation of the Pyramid Model in Nova Scotia, 75 educators will receive PM training in 2021 to 2022.
Table 7: Early Childhood Development Intervention Services
Note: This table was modified for accessibility reasons.
| Initiative | Principle(s) supported | Funding | Indicator(s) | Target(s) |
|---|---|---|---|---|
| Early Childhood Development Intervention Services (ECDIS) | Priority 3: imbedding inclusion in early learning and child care environments | $480,000 | Number of children from diverse populations supported through ECDIS (Acadian and Francophone, African Nova Scotian, Indigenous, and newcomer communities) | Support 250 children from Acadian and Francophone, African Nova Scotian, Indigenous, and newcomer communities through early intervention services (ECDIS) |
Funds from the previous bilateral agreement have enabled the province to enhance Early Childhood Development Intervention Services by adding 7 Developmental Interventionists, allowing them to extend their reach into more Acadian and Francophone, African Nova Scotian, and Indigenous communities. Since hiring these staff, ECDIS continues to see growth in the number of children from under served communities who are accessing intervention services, providing them with support to successfully transition and integrate into regulated child care, pre-primary, and school.
Funding from the current agreement will be used to retain 7 Developmental Interventionists, ensuring that ECDIS is able to maintain supports to children from under-served populations.
ECDIS data provincial overview of families served (March 2021):
- Acadian/Francophone: 96
- African/African Nova Scotian: 79
- new Immigrants: 57
- First Nations/Inuit: 258
Table 8: Inclusion Support Grant
Note: This table was modified for accessibility reasons.
| Initiative | Principle(s) supported | Funding | Indicator(s) | Target(s) |
|---|---|---|---|---|
| Inclusion Support Grant (ISG) | Priority 3: imbedding inclusion in early learning and child care environments | $1,250,000 |
|
|
Funding will be used to continue the Inclusion Support Grant, which is provided to regulated child care centres to support their commitment to build their capacity to provide inclusive programming for children with complex needs and those from diverse backgrounds and lived experience. Funding supports centre investments in the acquisition of resources and additional staffing to support developmental, social and physical inclusion for vulnerable, and/or low-income children who may require specialized supports, when necessary.
The number of regulated child care centres that are eligible for funding and the number of centres who are accessing ISG funding change throughout the year. For example, the application deadline for ISG is in June, so the number of centres will increase from March to June. It is also normal for the number of centres eligible for funding to decrease throughout the year due to centre closures, etc. As such, the percentage of eligible centres accessing ISG will shift and change throughout the year.
Section 2: New action plan initiatives for fiscal year 2021 to 2022
In fiscal year 2021 to 2022, Nova Scotia will introduce 2 new initiatives through the ELCCA action plan. NS will enhance the previous Infant Incentive Grant and introduce the Infant Quality Care Grant, in an effort to continue supporting the provision of high quality infant care programming through specialized learning. Further, as NS prepares for the federal Government’s commitment to a Canada wide child care system, EECD will support those currently working in early learning and care to participate in an accelerated work and learn ECE diploma program.
Federal investments in the identified new initiatives will not displace provincial early learning and child care spending.
The tables below outline the new initiatives for fiscal year 2021 to 2022.
Table 9: Infant Quality Care Grant
Note: This table was modified for accessibility reasons.
| Initiative | Principle supported and objectives | Funding | Indicator(s) | Indicator(s) |
|---|---|---|---|---|
| Infant Quality Care Grant (IQCG) | Priority #1: making child care more accessible and affordable for Nova Scotian families Priority 2: supporting quality through workforce development |
$1,000,000 |
|
|
In March 2018, an infant incentive was established, using ELCCA funding, to incentivize child care providers to increase their infant spaces by providing $4 per space per day in child care centres and $2 per space per day in family home child care programs. The funding was provided to offset the increased costs of providing infant care and supported more than 1,000 spaces in child care and family home child care. The initiative met its objective and ended on March 31, 2021.
Using the funding from the infant incentive grant, EECD will continue support the provision of quality infant care by providing ongoing professional learning, coaching and mentoring to child care centres and family home child care providers with infant spaces. The Infant Quality Care Grant (IQCG) focuses on improving the quality of infant care in regulated early learning and child care programs by ensuring infant educators and care providers participate in enhanced professional development and learning opportunities directly related to the provisions of high-quality infant care. This initiative will align with the current work centres are engaged in called Quality Matters. Along with on-line professional learning, a coaching and mentoring model will be implemented to support educators and care providers in their everyday practices. Focused professional development discussions will centre on infant development and care and building care relationships with families with a particular emphasis on culturally responsive theory and practices. Participants will report on improvements in quality of infant care in their program as a part of their Quality Improvement Plan (QIP). In the annual report, NS will include qualitative information related to quality improvement, such as observations by Early Childhood Development Consultants supporting infant care programs that chart the scope of changes in caregiver practices with infants.
Participating centres will be eligible for enhanced funding of $4 per infant space per day, while family home child care providers will be eligible for $2 per infant space per day.
Table 10: Accelerated Work and Learn Diploma Program
Note: This table was modified for accessibility reasons.
| Initiative | Principle supported and objectives | Funding | Indicator(s) | Target(s) |
|---|---|---|---|---|
| NSCECE Accelerated Work and Learn Diploma Program | Priority 2: supporting quality through workforce development | $1,800,000 | Number of students supported | Up to 120 students supported to engage in training program |
In 2020, the Nova Scotia College of Early Childhood Education (NSCECE), a long standing training institution of ECE in Nova Scotia, piloted an accelerated diploma program for those with significant ECE experiences. The pilot used a prior learning assessment and recognition (PLAR) process to assess the knowledge and skills of participants and grant credit where it is deemed that learning outcomes have been achieved. Students, who are currently employed in early learning and child care, participate in online learning during evening and weekend hours.
Building on this work, EECD will partner with the NSCECE to offer this training opportunity to an additional cohort of up to 120 students (including 20 newcomers). EECD will cover all costs for the student ensuring that they are set up from the onset for success. This includes tuition, student services supports, books and technology. Students are expected to graduate with an ECE diploma in 16 months.
Canada-Nova Scotia Early Learning and Child Care Agreement for fiscal year 2021 to 2022 – Summary table of investments
The table below provides a financial overview of fiscal year 2021 to 2022 action plan initiatives. Available funding for fiscal year 2021 to 2022 includes $584,513 in carry forward with $499,934 in returned IBM funds and $84,579 underspent from 2020 to 2021.
Table 11: Summary table of investments
Note: This table was modified for accessibility reasons.
| Category | Program or activity | Investment |
|---|---|---|
| Priority 1: Access and Affordability | Subsidy | $5,200,000 |
| Priority 1: Access and Affordability | Strategic Growth: Child Care | $340,000 |
| Priority 1: Access and Affordability | Strategic Growth: Family Home Child Care | $300,000 |
| Priority 1: Access and Affordability | Infant Quality Care Grant | $1,000,000 |
| Priority 2: Quality through workforce development | Professional Development | $125,000 |
| Priority 2: Quality through workforce development | Accelerated work and learn (NSCECE) | $1,800,000 |
| Priority 2: Quality through workforce development | Recognition of Prior Learning | $5,542 |
| Priority 3: Inclusion | Inclusion Support Grant | $1,250,000 |
| Priority 3: Inclusion | Pyramid Model | $541,971 |
| Priority 3: Inclusion | Early Childhood Development Intervention | $480,000 |
| Administrative | Information technology system | $600,000 |
| Administrative | Audit | $12,000 |
| Administrative | Full-time equivalents | $550,000 |
| Costs | N/A | $12,204,513 |
| ELCCA Funding | N/A | $11,620,000 |
| Carry Forward | N/A | $584,513 |
| Total federal funding available | N/A | $12,204,513 |
Annex 3 : Early childhood workforce funding for fiscal year 2021 to 2022
Whereas, Canada and Nova Scotia agree that the early childhood workforce is integral to providing high-quality ELCC.
Whereas, the Multilateral ELCC Framework is based on 5 key principles, one of which is ensuring ELCC systems are of high quality.
Whereas, the Multilateral ELCC Framework recognizes the importance of qualifications and training for the early childhood workforce as part of a high quality ELCC system.
Now therefore, the Parties agree as follows.
1.0 Purpose
1.1 Canada and Nova Scotia agree that in fiscal year 2021 to 2022, a one-time financial support from Canada to Nova Scotia will be used to support the recruitment and retention of the early childhood workforce.
2.0 Area of focus
2.1 Nova Scotia agrees to prioritize use of the funding to support the attraction and retention of a qualified early childhood workforce for early childhood programs and services, as defined in section 2.2.1 of the Canada-Nova Scotia Early Learning and Childcare Agreement, including through training, professional development, wages, bursary programs, tuition support and grants.
2.2 For greater clarity, activities that may support the objective of attracting and retaining a qualified workforce include but are not limited to:
- providing employment and training supports
- lowering the cost of education for those seeking their early childhood educator degree/certificate
- supporting the workforce in providing quality ELCC
- improving the ability to provide support to families more in need, including:
- lower-income families
- Indigenous families
- lone-parent families
- families with children with disabilities and children needing enhanced or individual supports
- Black and racialized children
- families from Official Language Minority Communities
- families in underserved communities
- those working non-standard hours and/or families with children with varying abilities
- needs also include having limited or no access to programs and services in the children's official language
2.3 Nova Scotia may use up to 10% of its workforce funding allocation towards administration costs.
3.0 Financial provisions
3.1 In fiscal year 2021 to 2022, to be paid concurrently with the contribution provided under section 4.2.3 of the Agreement, Canada has designated the following maximum amount to be transferred in total to all provinces and territories under this initiative with a fixed base rate of $2 million per year for each province and territory, and the balance of the funding on a per child (0 to 12) basis:
- $420,000,000 for the fiscal year beginning on April 1, 2021
3.2 The final amount to be paid to Nova Scotia is determined by the formula F x K/L, where:
- F is the total funding amount transferred to provinces and territories minus the base funding
- K is the population of children aged 0 to 12 in Nova Scotia in fiscal year 2021 to 2022, as determined using population estimates from Statistics Canada, and
- L is the total population of children aged 0 to 12 in Canada in fiscal year 2021 to 2022, as determined using population estimates from Statistics Canada
3.3 Subject to adjustment based on the formula described in section 3.2, Nova Scotia’s estimated share of the amount described in section 3.1 (a) will be as follows.
Table 12: Estimated amount to be paid to Nova Scotia
| Fiscal year | Estimated amount to be paid to Nova Scotia (subject to adjustment) |
|---|---|
| 2021 to 2022 | $10,894,891 |
For the purposes of the formula in section 3.2, the population of children aged 0 to 12 in Nova Scotia for the 2021 to 2022 fiscal year and the population of children aged 0 to 12 in all provinces and territories for that fiscal year are the respective populations as determined on the basis of the quarterly preliminary estimates of the respective populations on July 1 of that fiscal year. These estimates are released by Statistics Canada in September of each fiscal year.
3.4 Sections 4.6.1 to 4.6.5 of the Agreement, respecting carry forward, apply to funds provided under this annex.
4.0 Accountability
4.1 Action Plan
4.1.1 In addition to the requirements outlined in the Agreement under section 5.1, for fiscal year 2021 to 2022, Nova Scotia agrees to include the following additional information in the action plan for that fiscal year:
- specific priority areas for investment and objectives in supporting the recruitment and retention of the early childhood workforce in Nova Scotia
- demonstrate that federal investments will be incremental, and will not displace existing Nova Scotia spending in support of the early childhood workforce
- indicators that will be reported on according to Nova Scotia’s planned investments in the workforce
- specific targets for each indicator that will be reported on according to Nova Scotia’s planned investments
4.2 Reporting
4.3 In addition to the requirements outlined in the Agreement under section 5.2, for fiscal year 2021 to 2022, Nova Scotia agrees to:
- report to the people of Nova Scotia and to Canada on the results and expenditures to support the recruitment and retention of the early childhood workforce. The report shall show separately the results attributable to the funding provided by Canada under this Annex
- provide to Canada additional information in the annual report for that year that shall show separately the results attributable to the funding provided by Canada under this Annex and shall include:
- a description of the activities, expenditures and results undertaken under this Annex 3 in the manner set out in Annex 2
- results achieved according to the indicators and targets referred to in Annex 2
- the number of early childhood workforce staff (current and/or planned) supported by federal funding provided under this Annex including a description of how they were supported
- a description of the increase in recruitment and/or retention of the early childhood workforce in fiscal year 2021 to 2022
- provide to Canada an audited financial statement of revenues received from Canada under this Annex in fiscal year 2021 to 2022 including all of the following:
- the revenue section of the statement shall show the amount received from Canada under this Annex in fiscal year 2021 to 2022
- the total expenditures under this Annex in fiscal year 2021 to 2022
- if applicable, the amount of any surplus funds that are to be repaid to Canada under section 4.7 of the Agreement
The financial statement shall be prepared in accordance with Canadian Generally Accepted Accounting Principles and the audit shall be performed by the Nova Scotia Auditor General or his/her delegate, or by an independent public accounting firm registered under the laws of Nova Scotia and shall be conducted in accordance with Canadian Generally Accepted Auditing Standards.
Nova Scotia early childhood education workforce fiscal year 2021 to 2022 action plan
In this section
Introduction
Across Canada and internationally, early childhood education and care is increasingly seen as an important public investment. Growing research on the importance of the early years for a child’s lifetime of growth and development supports this investment.
Researchers, policy makers and practitioners agree that well-educated and supported early childhood educators are central to high quality environments and experiences for children. Quality and well-resourced early childhood education and care programs with a responsive, skilled early childhood educator workforce have a strong, positive impact on children’s developmental outcomes and later in life. The vital relationships between early childhood educators and young children are formed through the positive interactions formed in the daily routines and activities of infant, toddler and preschool settings.
The early childhood educator workforce in Nova Scotia and the infrastructure which educates, supports, and regulates the workforce has reached a turning point. Increasingly, the competencies of early childhood educators are in demand and more young children in Nova Scotia are attending early childhood education and care settings than ever before.
As the Government of Canada, in partnership with Provinces and Territories, embarks on the development of a Canada-wide child care system, it is critical that early learning and child care spaces are not simply available, but that children are receiving a high quality and inclusive early learning experience. As such, early childhood education and care settings must be staffed by qualified early childhood educators, who are intrinsically valued, are accountable as professionals, and have opportunities and support to refine and advance their competencies has never been more important.
Background
In 2016, Nova Scotia released its child care action plan, Affordable, Quality Child Care: A Great Place to Grow! recognizing that changes were needed to grow the early childhood educator workforce, recognize and value the work of early childhood educators, and increase the quality of childcare programs.
Over the last 4 years, significant investments were made to increase wages for early childhood educators on par with the national average, to support the workforce to upskill to increase the number of early childhood educators with education qualifications and to diversify the workforce. A number of these initiatives were funded through the Canada-Nova Scotia Early Learning and Child Care Agreement.
Concurrently, Nova Scotia developed its first early learning curriculum framework. Capable, Confident, and Curious: Nova Scotia’s Early Learning Curriculum Framework is intended to guide early childhood educators in their practice and programming with children from birth to 8 years old in early childhood programs and is required in licensed child care programs and the Pre-primary Program.
The publicly funded provincial Pre-primary Program was implemented over a 4 year period, beginning in 2017. Pre-primary is now fully implemented in all school communities across the province; all four year olds in the province have access to free early childhood education.
In November 2019, at the direction of the Minister, the Early Childhood Educators Working Group (ECEWG) was formed. The purpose of the ECEWG was to give early childhood educators an opportunity to directly engage in discussions that are meaningful to them in relation to their work in regulated childcare. The ECEWG identified several key areas impacting early childhood educators, especially those working in regulated childcare, specifically wages and benefits, qualified and trained workforce, a collective voice and the existing classification system.
Vision
Early childhood educators in Nova Scotia will be the most qualified and provide the highest quality early learning education and care in Canada.
As Canada moves towards a Canada-wide system for early childhood education and care, Nova Scotia intends to be a leader in supporting highly educated and qualified early childhood educators (ECE) to provide the best early learning education and care in the country. The advancement and professionalization of the early childhood education workforce will be a key mechanism in achieving this vision.
To achieve this vision, Nova Scotia will build toward a future for the early childhood education profession in which:
- children in early learning and care programs are supported by early childhood educators who have recognized diplomas or degrees in early childhood education
- individuals working in early learning and care settings who do not have diplomas in early childhood education have opportunities available for upskilling
- early childhood educators are valued, respected, and compensated accordingly for the important roles they play. They are accountable as professionals and demonstrate knowledge, skills and abilities specific to early childhood educators in their professional standards and competencies
- all early childhood educators have equitable access to high-quality pre-service and in-service preparation and development that supports them in developing and meeting the agreed-upon set of professional standards and competencies needed to work in any early childhood education and care setting
Early Learning and Child Care Agreement (ELCCA) Workforce funding will allow Nova Scotia to move forward with key components required to ensure that Nova Scotia is successful in achieving its vision for the ECE workforce. A strong and supported early childhood educator workforce in Nova Scotia means that children and families will benefit from high-quality early childhood education and care, delivered by a responsive, diverse, and a well-educated, workforce across all communities and settings.
Nova Scotia Workforce Plan
Nova Scotia’s plan for ELCCA funding aligns with our ECE workforce priority areas:
- defining the ECE in Nova Scotia
- pathways to education
- professional learning for ECEs
1. Defining the ECE in Nova Scotia
Nova Scotia recognizes the importance of a systematic approach to early childhood education by re-structuring and creating the conditions necessary to allow the profession to develop and mature, which in turn will support and advance children’s growth and development in quality early learning and child care environments across the province.
Nova Scotia will take steps to introduce a regulatory certification process for ECEs in the province that will be administered by the Department of Education and Early Childhood Development. Currently those working in regulated child care in Nova Scotia are assigned a level (level 1, 2, 3) through the department based on their experience and academic credentials through a classification system. They are assigned a level to support the department in understanding the funding required for their centre to help with wages. Their Levels do not reflect a formal certification process that is expected of a modern early childhood education system. The current system has resulted in anyone working directly in child care or pre-primary calling themselves an ECE in Nova Scotia, despite not having received formal education (that is, a diploma) in early childhood education. When Nova Scotia sunsets the current classification system and introduces a new modern, certification system, its intention is that only those individuals with recognized diplomas and degrees in early childhood education will be considered ECE’s and have responsibility for the pedagogical leadership in an early childhood classroom. There will be defined competencies and scope of practice for early childhood educators and early childhood educator assistants, and a new certification category for advanced practitioners in early childhood education. Through the workforce funding available, hundreds of staff without formal ECE education will be able to get a diploma, making them eligible for certification when the new/planned professional recognition scheme is introduced.
This approach includes defining an early childhood educator in Nova Scotia, and the skills, knowledge and abilities expected of them. It also includes determining the qualifications, competencies and accountabilities required for entry through licensing/certification; aligning higher education preparation programs with the requisite competencies; and ensuring there is a consistent and recognized compensation and benefits framework for early childhood educators.
As such, Nova Scotia will utilize Early Childhood Workforce funding for the following administrative initiatives:
- $150,000 to contract an external consultant that will:
- establish the competencies of ECEs at each level of practice
- establish the scope of practice and role definition for each level of ECE
- develop a competency framework
- outline a process for certification of ECEs
- outline a process to create regulation of ECEs in NS
- $150,000 to contract an early childhood educator labour force adjustment analysis specific to the compensation of early childhood educators in licensed child care. The consultant will develop compensation standards for entry and ongoing wages and benefits for professional responsibilities, including a wage grid / pay scales for all levels (determined through the scope of practice/education requirements/standards and competencies), using living wage/self-sufficiency standards as a minimum. Consideration will be given to strategies/incentives tied to advanced practitioner programs, professional development, mentoring, etc.
- $77,891 for marketing materials to support the continued recruitment of ECEs. The marketing campaign will include the development of training materials specifically to support Career Navigators, high school liaisons, and guidance counselors, including electronic and print resources
Total funding for all administrative initiatives (items above + $12,000 for audit): $389,891.
Targets:
- report detailing competency framework for ECEs, including scope of practice and role definition for each level of ECE, and process for certification of ECEs and regulation of ECEs in NS
- report detailing compensation standards for entry and ongoing wages and benefits for ECEs
- marketing materials to support ECE recruitment
2. Pathways to education
A. Support for currently employed ECEs to obtain a diploma (Retention Initiative)
One of Nova Scotia’s main objectives for ELCCA Workforce funding is to ensure that those currently working in child care and pre-primary continue to do so. Nova Scotia believes that these individuals are invested and committed to a career in early childhood education and care, and supporting them to get their academic credentials will go a long way to ensuring they continue to work in the field and see a long-term career path as an ECE in Nova Scotia.
As of December 2020, there were approximately 550 individuals employed in regulated child care programs in Nova Scotia with no training, and 500 with a level 1 classification. Staff classified at level 1 have completed an orientation, 3 courses (child development, behaviour guidance, and programming for young children), and 2 guided workplace experiences.
Over the last few years, EECD has been utilizing ELCCA funding to support ‘upskilling’ initiatives for staff in the sector. As such, there are currently 300 ‘untrained’ staff who are currently in process of completing, or have recently completed, level 1 training programs. EECD plans to continue supporting the growth, developing, and upskilling of staff at all levels.
ELCCA Workforce funding will be used to fund two initiatives aimed at supporting those currently employed in the early learning and child care sector with obtaining an ECE diploma. The initiatives outlined below to support currently employed ECEs to obtain a diploma will target 425 students, which is approximately 40% of the untrained/level 1 workforce in regulated child care. Supporting untrained and level 1 staff to access an ECE diploma will not only enhance program quality for children and families but will also result in higher wages for staff. ECEs with a diploma (that is, level 2 classification) will receive a wage of at least $17 an hour, compared to level 1 staff, who receive $15 an hour.
B. Accelerated diploma for those working and have some training
Through this initiative, those currently working in child care and pre-primary can take an accelerated ECE diploma program to graduate within 18 months. EECD will partner with 3 training institutions to offer this opportunity for 400 students. The program will be open to ECEs from across Nova Scotia, and a minimum of up to 20% of the spaces will be designated spaces for those who self-identify as equity seeking individuals, such as, but not limited to Black or African Nova Scotian, Mi’kmaq or Indigenous, and Francophone or Acadians. This initiative will include 3 designated cohort programs for Mi’kmaq or Indigenous, Black or African Nova Scotian, and Francophone or Acadian learners. The Mi’kmaq cohort will follow the ‘First Nations ECE workplace learning pilot’ modified ECE diploma curriculum, developed in 2018 using ELCCA funding. The program was designed by Mi’kmaq Elders, delivered by a Mi’kmaq instructor, and uses curriculum modified to reflect Mi’kmaq language, culture, and history. Similarly, the cohort for Black or African Nova Scotian learners will use the Africentric ECE diploma program and resource materials, which were developed in partnership with the African NS community. The program brings an Africentric perspective and approach to the existing ECE curriculum and includes Africentric education resources for students. Finally, a cohort will be offered for Francophone or Acadian learners by the Université Saint Anne, Nova Scotia’s only French-language post-secondary training institution.
Students will remain employed throughout the duration of their program and would complete the diploma program through online delivery. Programs will be purposefully designed for students who are working acknowledging that many of these students have limited post-secondary experience. Institutions will provide students resources and services to help ensure their success. Funding will be used to cover tuition and support costs to students. This opportunity not only increases the earning potential for these individuals, but it will also have a direct impact on quality in early learning and care environments in Nova Scotia.
Funding for this initiative will be disbursed by March 31, 2022. All participants will be registered by the end of the 2021 to 2022 fiscal year, with training cohorts beginning in January 2022 and/or March 2022. EECD will continue to track student progress and will provide this information in the annual reports to the Government of Canada.
C. Diploma program for untrained ECE staff
While the accelerated ECE training programs will offer opportunities for 400 level 1 ECE’s looking to get their diploma, there may still be individuals working in child care and Pre-primary who do not have level 1 certification, or even a high school diploma or GED. Without these academic credentials, they are not eligible to participate in the accelerated program, which significantly limits their professional growth and earning potential. These are individuals that have competencies and interest in working in early learning and care. Nova Scotia recognizes the value of these individuals and the important role they play in regulated child care and pre-primary will offer a program designed with their unique experience in mind. Using an Expression of Interest process, EECD will be inviting approved ECE training institutions in the province to submit innovative plans to offer an ECE diploma program to at least 25 untrained staff that are currently working in early learning and child care. This custom program will support those with a desire to advance their career in early childhood education but without the necessary formal academic credentials, the opportunity to earn a diploma.
Funding for this initiative will be disbursed by March 31, 2022, and all participants will be registered by the end of the 2021 to 2022 fiscal year. EECD will continue to track student progress and will provide this information in the annual reports to the Government of Canada.
Total funding for all “Up-skilling” initiatives: $6,580,000.
Targets: 400 part time ECE diploma students enrolled in accelerated work and learn program; 25 untrained ECEs enrolled in diploma program.
D. Support for full-time ECE students (Recruitment Initiative)
As Nova Scotia focuses on ensuring that staff currently employed in the early learning and child care sector have access to training opportunities, it is also important to ensure that students enrolled full time in pursuing ECE training also have access to financial supports. EECD will use ELCCA Workforce funding to target supports to full time students through a tuition assistance program.
A Tuition Assistance Program will be made available for up to 300 students who are enrolled in either a full time ECE diploma program at any of Nova Scotia’s 5 ECE diploma training institutions, or a degree from Mount Saint Vincent with a focus on early childhood education. Students will be provided with $3,250 each to support tuition costs for 1 year only.
In addition, to support Nova Scotia’s focus on the development of a diverse and inclusive workforce, students in one of the following 6 identified groups will be eligible for $7,500 in tuition assistance:
- Black or African Nova Scotian
- Acadian or Francophone
- Mi’kmaq or Indigenous
- persons with disabilities and persons needing enhanced or individual supports
- 2SLGBTQ+
- newcomer
It is estimated that there will be a maximum of 10 students that will receive a bursary from each of these groups enrolled in the full-time program. The bursary is individually valued at $7,500.
Total funding for full support for full time students: $1,425,000.
Target: 300 full time students supported to obtain ECE diploma or degree.
3. Professional Learning for ECEs (Retention Initiative)
A. Advanced Practitioner Program
The Advanced Practitioner Program in Early Childhood Education (APP) will bring together academics, researchers, government, and the early learning sector to raise the bar of quality early childhood education in Nova Scotia by creating learning opportunities for early childhood educators. This program will be rigorous, including course work and practical experience, and will allow them to expand their knowledge and strengthen their practice in specialty areas which will in turn support the delivery of exceptional quality experiences for children. Each post diploma certificate will have the lens of supporting children with disabilities and children needing enhanced or individual supports, as well as inclusion and diversity. Nova Scotia believes that Advanced Practitioners in ECE must have an advanced understanding for how to support all children accessing the program, therefore every post-diploma certificate, no matter whether it is outdoor play or infant and toddler will have rigorous coursework dedicated specifically to equity, inclusion, and diversity, which will ensure that ECE are able to support all children, including children with disabilities and children needing enhanced or individual supports.
Participation in this program will be limited to those early childhood educators with a degree or diploma and significant work experience in early childhood education and care settings. Successful completion of an APP certificate will be reflected on the ECE compensation framework.
In fiscal year 2021 to 2022, funding will be used for the following:
- development of 4 post diploma in-service certificate programs (1 year in length):
- Infant and Toddler
- Pedagogical Leadership
- Preschool Age
- Outdoor Play
- workforce survey to provide critical information regarding the development of future APP, career pathways, etc.
- bursaries for up to 100 students in the certificate programs (including full tuition, books, etc.)
Total funding for Advanced Practitioner Program: $2,500,000.
Targets: 4 APP post-diploma certificate programs developed, 100 students enrolled in the Advanced Practitioner Program.
Conclusion
Nova Scotia is excited to move this work forward with support from the Government of Canada. The early learning and child care profile is high right now, due in part to the implementation and early success of programs such as the Pre-primary Program, as well as the impacts of the COVID-19 pandemic, which has amplified the importance of early learning and child care, both in Nova Scotia and across the county. The Government of Canada’s plan to move forward with a Canada-wide universal child care system has provided even more incentive to ensure that the Nova Scotia ECE workforce is stable and prepared to raise the bar on the provision of quality care. When the universal child care system in place, Nova Scotia will be ready, with the most qualified ECEs in the country, to welcome all children into the early learning environment.
Table 13: Summary table of Investments
Note: This table was modified for accessibility reasons.
The table below provides an overview of the budget and targets for fiscal year 2021 to 2022 ELCCA Workforce action plan initiatives.
| Category | Description | Budget |
|---|---|---|
| Workforce funding | Accelerated Diploma Programs | $6,080,000 |
| Workforce funding | Diploma for Untrained ECE Staff | $500,000 |
| Workforce funding | Tuition Assistance | $1,425,000 |
| Workforce funding | Advanced Practitioner Program | $2,500,000 |
| Administration costs | Marketing | $77,891 |
| Administration costs | Consultant: defining the ECE in NS | $150,000 |
| Administration costs | Consultant: ECE Compensation | $150,000 |
| Administration costs | Audit | $12,000 |
| Total administration costs | N/A | $389,891 |
| Total fiscal year 2021 to 2022 total expenses | N/A | $10,894,891 |
| Total fiscal year 2021 to 2022 funding received | N/A | $10,894,891 |
Table 14: Action plan overview
Note: This table was modified for accessibility reasons.
| Program initiative | Outcomes | Indicators | Targets for March 31, 2022 | Overall targets (with implementation end date) | Funding |
|---|---|---|---|---|---|
| Accelerated diploma for those working and have some training | Increased number of staff with ECE diploma | Number of students enrolled in accelerated work and learn diploma program | 400 part time ECE diploma students enrolled in accelerated work and learn program | 400 part time ECE diploma students enrolled in accelerated work and learn program Target will be met March 2022 |
$6,080,000 |
| Diploma program for untrained ECE staff | Increased number of staff with ECE diploma | Number of students enrolled in diploma program | 25 untrained ECEs enrolled in diploma program | 25 untrained ECEs enrolled in diploma program Target will be met March 2022 |
$500,000 |
| Support for full time ECE students | Increased number of students supported | Number of ECE students supported | 300 full time ECE students supported | 300 full time ECE students supported Target will be met September 2021 |
$1,425,000 |
| Advanced Practitioner Program (APP) |
|
|
|
Targets will be met March 2022 |
$2,500,000 |
| Consultant to develop competency framework for ECEs, including scope of practice and role definition for each level of ECE, process for certification of ECEs and regulation of ECEs in NS (administrative) | Increased information to support the growth and development of ECE profession in NS | Delivery of report | Report detailing competency framework, scope of practice, certification process and regulation process for ECEs | Report detailing competency framework, scope of practice, certification process and regulation process for ECEs Targets will be met March 2022 | $150,000 |
| Consultant to detail compensation standards for entry and ongoing wages and benefits for ECEs (administrative) | Increased information to support the growth and development of ECE profession in NS | Delivery of report | Report detailing compensation standards ECEs | Report detailing compensation standards ECEs Targets will be met March 2022 |
$150,000 |
| Marketing materials to support ECE recruitment (administrative) | Increased number of individuals receiving information about ECE as a career | Development of marketing materials | Marketing materials to support ECE recruitment | Marketing materials to support ECE recruitment Targets will be met March 2022 |
$77,891 |
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