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Canada-Nunavut Canada-wide Early Learning and Child Care Agreement – 2021 to 2026

Official title: Canada-Nunavut Canada-wide Early Learning and Child Care Agreement

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List of abbreviations

DESDA
Department of Employment and Social Development Act
ECE
Early childhood educator
ELCC
Early learning and child care
ELCC Agreement
Early Learning and Child Care Canada-wide Agreement
FASD
Fetal alcohol spectrum disorder
GN
Government of Nunavut
GOC
Government of Canada
IELCC
Indigenous early learning and child care
IIELCC
Inuit-specific Indigenous early learning and child care
IT
Information technology
LGBTQ2+
Lesbian, gay, bi-sexual, trans, queer, two-spirited and more
MEL
Monitoring, evaluation, and learning
NAC
Nunavut Arctic College
NDMS
Nunavummi Disabilities Makinnasuaqtiit Society
NLCA
Nunavut Land Claims Agreement (Nunavut Agreement)
Non-profit
Not-for-profit societies
NBHS
Nunavut Black History Society
NTI
Nunavut Tunngavik Incorporated
RCMP
Royal Canadian Mounted Police
RIA
Regional Inuit Association

Canada-Nunavut Canada-wide Early Learning and Child Care Agreement

Between:

Referred to collectively as the “Parties”.

Preamble

Whereas, Canada and Nunavut 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, Canada and Nunavut will work together to build a community-based system of quality, regulated early learning and child care, aiming for all families to have access to high-quality, affordable, flexible and inclusive early learning and child care no matter where they live.

Whereas, building on the 2020 Fall Economic Statement, Budget 2021 commits almost $30 billion over 5 years and provides permanent ongoing funding to work with provincial and territorial, and Indigenous partners to support quality, not-for-profit child care, and ensure early childhood educators are at the heart of the system. Combined with previous investments announced since 2015, approximately $9.2 billion per year ongoing will be invested in child care, including Indigenous early learning and child care, starting in fiscal year 2025 to 2026.

Whereas, Canada’s spending in early learning and child care is intended to increase until it is roughly shared with provinces and territories by fiscal year 2025 to 2026.

Whereas, to further support a lasting federal commitment, Canada is committed to tabling Early Learning and Child Care (ELCC) legislation, following consultations with stakeholders, provincial, territorial, and Indigenous partners, to enshrine the principles of a Canada-wide ELCC system into law.

Whereas, the Department of Employment and Social Development Act (DESDA) 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 falling within DESDA.

Whereas, the Child Day Care Act authorizes the territorial Minister to enter in agreements with the Government of Canada under which Canada undertakes to provide funding toward costs incurred by the Government of Nunavut for the provision of early learning and child care.

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 child care programs and services.

Whereas, the Truth and Reconciliation Commission of Canada has called “upon the federal, provincial, territorial, and Indigenous governments to develop culturally appropriate early childhood education programs for Aboriginal families”.

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, Nunavut invests in early learning and child care for Indigenous children and Canada and Nunavut agree to work collaboratively with Indigenous governing bodies and organizations to achieve a Canada-wide ELCC system.

Now therefore, Canada and Nunavut agree as follows.

1.0 Vision for Canada-wide early learning and child care

1.1 Canada and Nunavut agree that the long-term vision and objectives for Canada-wide ELCC set out in the Multilateral Framework will guide the investment of funds provided under this Agreement. This includes the vision that all families in Canada have access to high-quality, affordable, flexible and inclusive early learning and child care no matter where they live.

1.2 Canada and Nunavut aspire to the following objectives:

  1. providing a 50% reduction in average parent fees for regulated ELCC by the end of 2022 and reaching an average of $10 a day by fiscal year 2025 to 2026 for all regulated child care spaces
  2. creating more high-quality, affordable regulated child care spaces, primarily through not-for-profit and public child care providers
  3. addressing barriers to provide inclusive and flexible child care
  4. valuing the early childhood workforce and providing them with training and development opportunities

1.3 Canada and Nunavut agree that progress toward this vision will be undertaken by prioritizing federal investments in support of regulated early learning and child care and for children under age 6.

2.0 Canada-wide early learning and child care objectives and areas of investment

2.1.1 Canada and Nunavut commit to the following territorial objectives:

2.1.2 Nunavut’s policy and approach to achieving these objectives is set out in its action plan attached as Annex 2.

2.2 Eligible areas of investment

2.2.1 Nunavut agrees to use funds provided by Canada under this Agreement to support the expansion of regulated child care, and prioritize not-for-profit (including publically delivered) early learning and child care programs and services, for children under the age of 6, where:

  1. regulated programs and services are defined as those that meet standards that are established and/or monitored by provincial/territorial governments and Indigenous governments and authorities
  2. not-for-profit providers and operations, which includes publically delivered operations, are defined as those that provide child care services to a community for a purpose other than generating a profit, typically improving family and/or child well being and/or development. Providers may generate a profit, but the surplus earnings, or other resources, are directed towards improving child care services rather than distributed for the personal benefit of owners, members, investors or to enhance asset growth. 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 ELCC programs and services, Nunavut agrees to take into account the needs of official language minority communities in its jurisdiction.

2.2.3 Acceptable investments under this Agreement may include, but are not limited to: capital and operating funding for regulated ELCC; fee subsidies; training, professional development and support for the early childhood workforce; quality assurance; parent information and referrals; and certain administration costs incurred by Nunavut to support the growth and expansion of the child care system, and the implementation and administration of this Agreement.

2.2.4 Canada and Nunavut also agree to promote, define, and deliver innovative approaches to enhance the quality, access, affordability, flexibility, and inclusivity of ELCC systems, with consideration for those more in need.

2.2.5 Canada and Nunavut agree that funding will be targeted toward regulated programs and activities, as described above, for children under age 6, that will have an impact on families, including families more in need such as:

Needs also include having limited or no access to ELCC programs and services in the children’s official language.

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 March 31, 2026, unless terminated in writing by Canada or Nunavut in accordance with the terms hereof in section 10. Funding provided under this Agreement, in accordance with section 4, will cover the period from April 1, 2021 to March 31, 2026.

3.2 Canada-wide early learning and child care bilateral agreements

3.2.1 Extension of this Agreement beyond March 31, 2026 will provide Nunavut and Canada the opportunity to review and course correct, if required, and realign new priorities in future Agreements based on progress made to date.

3.2.2 In the event this Agreement is extended in accordance with the terms of sections 3.2.1 and 9.0, Nunavut may continue to use funding provided 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 2025 to 2026 subject to the terms and conditions of that extended agreement.

4.0 Financial provisions

4.1 These contributions are in addition to and not in lieu of those that Canada currently pays to Nunavut through the Canada Social Transfer in order to support early childhood development and ELCC within Nunavut.

4.2 Allocation to Nunavut

4.2.1 Subject to Parliamentary approval of appropriations, 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 child (0 to 12) basis for the period starting on April 1, 2021 and ending on March 31, 2026. This funding includes financial commitments made as part of the fiscal year 2021 to 2022 to fiscal year 2025 to 2026 Canada-wide Early Learning and Child Care Agreements.

  1. $2,948,082,433 for the fiscal year beginning on April 1, 2021
  2. $4,489,349,839 for the fiscal year beginning on April 1, 2022
  3. $5,538,345,183 for the fiscal year beginning on April 1, 2023
  4. $6,492,201,954 for the fiscal year beginning on April 1, 2024
  5. $7,718,943,823 for the fiscal year beginning on April 1, 2025

4.2.2 Subject to annual adjustment based on the formula described in section 4.2.3, Nunavut’s estimated projected share of the amounts described in section 4.2.1 will be as follows.

Table 1: Nunavut’s estimated projected share of financial provisions by fiscal year
Fiscal year Estimated amount to be paid to Nunavut* (subject to annual adjustment)
2021 to 2022 $8,133,228
2022 to 2023 $11,302,698
2023 to 2024 $13,448,493
2024 to 2025 $15,381,033
2025 to 2026 $17,843,624

4.2.3 The final amount to be paid to Nunavut for the fiscal year will be calculated using the formula F x K/L plus $2 million, where:

4.2.4 For the purposes of the formula in section 4.2.3, the population of children aged 0 to 12 for Nunavut for each fiscal year and the total 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 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.

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 The amount of the first installment will be an amount equal to 50% of the total amount of Canada’s maximum contribution to Nunavut for the fiscal year, which will be calculated using Statistics Canada 0 to 12 population estimates from the previous year.

4.4.3 The amount of the second installment will be an amount equal to the balance of Canada’s contribution to Nunavut 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.

4.4.4 Canada will notify Nunavut at the beginning of the fiscal year of their notional amount. The actual amount will be based on the Statistics Canada preliminary children (0 to 12) population estimates on July 1 of the preceding fiscal year.

4.4.5 In fiscal year 2023 to 2024, Canada shall withhold payment of its first installment if Canada has not received from Nunavut its planned action plan for fiscal year 2023 to 2024 to fiscal year 2025 to 2026, in accordance with requirements outlined in section 5.1.

4.4.6 Starting in fiscal year 2022 to 2023, Canada shall withhold payment of its first installment for a fiscal year if Canada has not received from Nunavut all information requested under section 4.4.8 for the payment of its second installment from the previous fiscal year.

4.4.7 Starting in fiscal year 2022 to 2023, Canada may withhold amounts payable in respect of fiscal year if Nunavut is unable to meet the objectives of the Agreement, in accordance with section 2.

4.4.8 Starting in fiscal year 2022 to 2023, Canada shall withhold payment of its second installment for that fiscal year until Nunavut provides an annual progress report outlining data and results achieved from the previous fiscal year in accordance with section 5.2.2 (a) and its annual audited financial statement of the previous fiscal year in accordance with section 5.2.2 (c).

4.4.9 The sum of both semi-annual installments constitutes a final payment and is not subject to any further adjustment once the second installment of that fiscal year has been paid, unless there is a debt due to Canada, which requires repayment in accordance with section 4.7.

4.4.10 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. Likewise, use of the funding by Nunavut is subject to an annual appropriation by Nunavut’s Legislature.

4.5 Maximum annual contribution in respect of administration costs

4.5.1 Canada’s contribution in respect of Nunavut’s administration costs referred to in section 2.2.3 shall not exceed:

4.6 Carry forward

4.6.1 In fiscal year 2021 to 2022, at the request of Nunavut, and subject to approval of Canada’s Treasury Board, Nunavut may retain and carry forward to the following fiscal year any unexpended funds remaining from Nunavut’s annual contribution payable under section 4.2, up to a maximum of 95% of the contribution payable. Any unexpended funds in excess of 95% of the contribution payable represents an overpayment subject to section 4.7.

4.6.2 In fiscal year 2022 to 2023, at the request of Nunavut, and subject to approval of Canada’s Treasury Board, Nunavut may retain and carry forward to the following fiscal year any unexpended funds remaining from Nunavut’s annual contribution payable under section 4.2, up to a maximum of 80% of the contribution payable. Any unexpended funds in excess of 80% of the contribution payable represents an overpayment subject to section 4.7.

4.6.3 Starting in fiscal year 2023 to 2024, at the request of Nunavut, and subject to approval of Canada’s Treasury Board, Nunavut may retain and carry forward to the following fiscal year any unexpended funds remaining from Nunavut’s annual contribution payable under section 4.2, up to a maximum of 10% of the contribution payable. Any unexpended funds in excess of 10% of the contribution payable represents an overpayment subject to section 4.7.

4.6.4 Nunavut may only use the amount carried forward to the following fiscal year for expenditures on eligible areas of investment made under section 2.2 incurred that fiscal year.

4.6.5 For greater certainty, any amount carried forward under sections 4.6.1 to 4.6.3 is supplementary to the maximum amount payable to Nunavut under section 4.2 of this Agreement during the fiscal year in which the funding is carried forward.

4.6.6 All amounts carried forward to the next fiscal year, pursuant to sections 4.6.1 to 4.6.3 must be spent by the end of that fiscal year. Nunavut 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 payable pursuant to section 4.2 that remains unexpended at the end of that fiscal year and is not carried forward in accordance with sections 4.6.1 to 4.6.3. 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 Nunavut exceed the amount to which Nunavut is entitled under the Agreement and/or unexpended funding is in excess of the carry forward allowance, 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 Nunavut under this Agreement.

4.8 Use of funds

4.8.1 Canada and Nunavut agree that funds provided under this Agreement will only be used by Nunavut in accordance with the areas for investment outlined in section 2.2 of this Agreement.

4.8.2 Canada and Nunavut agree that, within each fiscal year of the period of this Agreement, Nunavut may move funding between the individual programming categories outlined in its action plan in Annex 2 to ensure the maximum use of funding. Nunavut agrees to notify Canada in writing of any such change in funding allocation, including the rationale for the change. The change will be implemented upon agreement between Canada and Nunavut.

4.8.3 Canada and Nunavut agree that funds provided under this Agreement will be used to ensure improvements in ELCC as outlined in section 2.1.1 and will not displace existing territorial or municipal spending in place on or before March 31, 2021.

5.0 Accountability

5.1 Action plan

i. Nunavut has completed and shared its action plan for fiscal year 2021 to 2022 and fiscal year 2022 to 2023 (Annex 2). Subsequently, Nunavut will provide an action plan for fiscal year 2023 to 2024 to fiscal year 2025 to 2026 by the beginning of fiscal year 2023 to 2024. Nunavut will publicly release their action plan which:

  1. outlines an implementation plan towards achieving objectives set out in section 1, including priority areas for investment, and targets by indicator, within the Framework’s parameters
  2. identifies specific targets for each indicator that will be reported on annually for tracking progress in relation to the objectives set out under section 2.1.1, and as outlined in its action plan in Annex 2 which may include:
    • total number of ELCC spaces available during the fiscal year, broken down by age groups of child and type of setting (for example, for profit or not-for-profit or public regulated child care centres, regulated family child care homes, etc.)
    • the number of net new spaces created during the fiscal year, broken down by age groups of child and type of setting (for example, for profit or not-for-profit or public regulated child care centres, regulated family child care homes, etc.)
    • total number of inclusive (as defined in section 2.1.1) spaces created or converted, broken down by age group of child and type of setting
    • average daily parental out-of-pocket fee for regulated child care spaces at the end of each fiscal year, including at the beginning of fiscal year 2021 to 2022 and at the end of 2022
    • number of children under age 6 and 6 to 12 years receiving fee subsidies, broken down by families receiving partial and full subsidies
    • number and proportion of children under age 6 and 6 to 12 years in flexible regulated ELCC arrangements and number and proportion of centers and providers that provide flexible arrangements (that is, non-traditional arrangements such as flexible or irregular hours, weekend and emergency services; and geographic distribution of spaces)
    • number of children under age 6 and 6 to 12 years with disabilities and children needing enhanced or individual supports that are in regulated ELCC spaces
    • number or proportion of child care service providers who provide services that are adapted to the needs of children with disabilities and children needing enhanced or individual supports
    • number of Indigenous children under age 6 years in regulated ELCC spaces, distinction-based (First Nations, Inuit, Metis) where possible
    • number of racialized children, including Black children under age 6 in regulated ELCC spaces
    • number and percentage of staff working in regulated child care programs in Nunavut who fully meet Nunavut’s certification or educational requirements
    • annual public expenditure on training and professional development of the early childhood workforce
    • wages of the early childhood workforce according to the categories of certification, including any wage enhancements, top-ups and/or supplements
  3. identifies additional jurisdiction-specific indicators for tracking progress in relation to the objectives of the Agreement
  4. describes how Nunavut plans to address the ELCC needs of its children and families more in need, as described in section 2.2.5
    • if available, number and proportion of children under age 6 and 6 to 12 years from families more in need that are in regulated ELCC spaces
  5. outline any additional available information to be reported annually that would be useful to assess progress, including:
    • information about waiting lists to access regulated ELCC spaces
    • total child care subsidies provided by parents’ income level
    • average child-to-staff ratio among licensed child care service providers
    • total annual investment in ELCC
  6. 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 Nunavut will consult with parents, child care providers, experts, Indigenous peoples, official language minority communities and other interested parties as an important step in developing and revising its action plan. Nunavut will outline the results of consultations in its action plan as well as through its annual reporting.

5.1.3 By the beginning of fiscal year 2023 to 2024, Nunavut commits to share with Canada its fiscal year 2023 to 2024 to fiscal year 2025 to 2026 action plan. The action plan shall include the elements described in section 5.1 (i) a) to f). Once the Parties agree that the fiscal year 2023 to 2024 to fiscal year 2025 to 2026 action plan is final, the action plan may be published by one or both of the Parties and Canada will provide Nunavut with its first payment for the fiscal year 2023 to 2024 according to section 4.4.

5.2 Reporting

5.2.1 In the first fiscal year, Nunavut agrees to provide baseline data on indicators set out in their action plan as soon as possible after the Parties sign this Agreement.

5.2.2 Starting in fiscal year 2022 to 2023, by no later than October 1 of each fiscal year during the Period of this Agreement, Nunavut agrees to:

  1. provide to Canada an annual report in the format and manner decided jointly by Canada and Nunavut. The report shall show separately the results attributable to the funding provided by Canada under this Agreement and shall include:
    • a description of the activities, expenditures and results of the Agreement as set out in Annex 2
    • results achieved in working towards the vision for Canada-wide ELCC set out in this Agreement, including average child care fees and progress toward the average 50% reduction in fees by the end of 2022 and reaching an average fee of $10 a day by fiscal year 2025 to 2026
    • results achieved according to the indicators and targets referred to in Annex 2
    • the impact on families more in need, as described in section 2.2.5, including progress toward specific Nunavut targets as described in Annex 2, such as the numbers of inclusive spaces supported by federal funding and by category
    • additional available information to be reported annually that would be useful to assess progress
    • description of any relevant consultation processes, the type of groups consulted and annual priorities related to stakeholder feedback referred to in Annex 2
    • any additional results of an annual child care census as per section 5.2.2 (f) and any evaluation activities undertaken in the fiscal year, as available
  2. continue to provide to Canada additional data required for the publication of the annual National Progress Report
  3. provide to Canada an audited financial statement of revenues received from Canada under this Agreement during each fiscal year, indicating:
    • 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 Nunavut in developing and administering ELCC programs under section 2.2.3
    • if applicable, the amount of any amount carried forward by Nunavut 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 Nunavut Auditor General or his/her delegate, or by an independent public accounting firm registered under the laws of Nunavut and shall be conducted in accordance with Canadian Generally Accepted Auditing Standards.
  4. provide financial and administrative information, as required, to demonstrate progress in meeting the requirements in this Agreement
  5. Canada and Nunavut recognize the importance of reporting to the public on results achieved under this Agreement. Within 365 days of the end of each fiscal year during the Period of this Agreement, Nunavut agrees to report to the people of Nunavut and Canada on the results and expenditures of ELCC programs and services. The report shall show separately the results attributable to the funding provided by Canada under this Agreement and be consistent with the annual report outlined under section 5.2.2 (a)
  6. to inform reporting on results related to Nunavut action plan, Nunavut agrees to undertake, and share results with Canada from, an annual census of child care providers and other participants in the sector in Nunavut to collect information, including: number of children enrolled, capacity (number of spaces), number of ECEs, ECE wages and qualifications, fee charged to parents, subsidies, number of First Nations, Inuit or Metis child care spaces supported, etc. Costs of undertaking such a census would be eligible expenses under this Agreement, to the maximum set out in section 4.5.1

5.2.3 Canada, with prior notice to Nunavut, may incorporate all or any part or parts of the annual report described under section 5.2.2 (a) 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 Nunavut will ensure that expenditure information presented in the annual report is, in accordance with Nunavut’s standard accounting practices, complete and accurate.

5.4 Evaluation

5.4.1 As per established policies and processes with respect to program effectiveness, Nunavut will evaluate programs and services receiving funds provided under this Agreement and make public the results of any such evaluations.

5.4.2 Nunavut may be asked to participate in the evaluation by Canada of the initiatives under this Agreement and agrees to provide information as requested by Canada during and following the Agreement in order for Canada to evaluate relevant initiatives under this Agreement. Evaluation results will be made available to the public.

6.0 Long-term collaboration

6.1 Understanding that building a new social program is complex, and that both governments are committed to achieving $10 a day child care, Canada and Nunavut will create an officials-level Implementation Committee that will monitor progress towards this goal in consultation with stakeholders. Nunavut will provide data to support the work of the Implementation Committee.

6.2 Canada and Nunavut, through the Implementation Committee and/or Designated Officials, agree to meet at least twice annually, timed to coincide with the planning and reporting cycles, or as agreed to by the Parties to discuss and exchange on issues related to this Agreement, including:

6.3 Canada and Nunavut agree to share and release data as available, and share knowledge, research and information on effective and innovative practices in ELCC, to further support the development of and reporting on quality and outcomes. Canada and Nunavut agree to work together, and with stakeholders, towards the development of additional measures and indicators that could be included in bilateral agreements in the future that could reinforce the vision for Canada-wide ELCC.

7.0 Communications

7.1 Canada and Nunavut 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 Canada and Nunavut recognize the importance of ensuring that the public is informed of Canada’s financial contributions to Nunavut’s ELCC programs and services, funded under this Agreement.

7.3 Nunavut agrees to acknowledge Canada’s contribution by including federal identification in all public communications and marketing products, promotional material and advertising.

7.4 Canada reserves the right to conduct public communications, announcements, events, outreach and promotional activities about the Framework and bilateral agreements. Canada agrees to give Nunavut 10 days advance notice of public communications related to the Framework, bilateral agreements, and results of the investments of this Agreement.

7.5 Nunavut reserves the right to conduct public communications, announcements, events, outreach and promotional activities about the Framework and bilateral agreements. Nunavut 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.

7.6 Canada and Nunavut agree to participate in a joint announcement upon signing of this Agreement.

7.7 Canada and Nunavut agree to work together to identify opportunities for joint announcements relating to programs funded under this Agreement.

7.8 Nunavut will make best efforts to require service providers, funded under this Agreement to display federal identification to recognize that the programs and services provided receive Canada’s financial assistance.

7.9 Nunavut agrees that promotional communications to all groups receiving funding through this Agreement (that is, child care centres, regulated family child care homes, early learning centres, preschools and nursery schools, before-and after-school programming, businesses, associations, unions, training institutions, universities, colleges, and career colleges) will include federal identification and recognize Canada’s financial assistance.

7.10 Canada will provide a mutually agreed upon standard letter to Nunavut for use in notifying all recipients of funding from this Agreement, to include federal and Nunavut identification and recognize Canada’s financial assistance. Parties may collectively agree on an alternate version that appropriately identifies and recognizes both Parties.

8.0 Dispute resolution

8.1 Canada and Nunavut 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 Nunavut 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 Nunavut, as the case may be, may notify the other party in writing of the failure or breach. Upon such notice, Canada and Nunavut 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 ELCC, and if it cannot be resolved by them, then the federal Minister and the Nunavut Minister shall endeavour to resolve the dispute.

8.4 If Nunavut has failed to comply with its obligations or undertakings and where the Nunavut and federal Ministers are unable to resolve related disputes, a termination of the Agreement may be pursued in accordance with section 10.

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

9.3 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 Termination

10.1 Canada may terminate this Agreement at any time if the terms of this Agreement are breached by Nunavut by giving at least 6 months written notice of Canada’s intention to terminate this Agreement. Nunavut may terminate this Agreement at any time if the terms of this Agreement are breached by Canada by giving at least 6 months written notice of Nunavut’s intention to terminate this Agreement.

10.2 As of the effective date of termination of this Agreement under section 10.1, Canada shall have no obligation to make any further payments to Nunavut after the date of effective termination.

11.0 Notice

11.1 Any notice, information or document provided under this Agreement will be effectively 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:

Federal Secretariat on Early Learning and Child Care
140 Promenade du Portage
Gatineau QC K1A 0J9
NC-SSP-ELCC-GD@hrsdc-rhdcc.gc.ca

The address for notice or communication to Nunavut shall be:

Director, Early Learning and Child Care
P.O. Box 1000, Station 960
Iqaluit NU X0A 0H0
rclowedu@gov.nu.ca

12.0 General

12.1 This Agreement, including Annexes 1 and 2 comprise the entire agreement entered into by the Parties with respect to the subject matter hereof.

12.2 This Agreement does not displace federal investments in ELCC, based on the Multilateral Early Learning and Child Care Framework, Annex 1, concluded on June 12, 2017.

12.3 This Agreement shall be interpreted according to the laws of Canada and Nunavut.

12.4 No member of the House of Commons or of the Senate of Canada or of the Legislature of Nunavut shall be admitted to any share or part of this Agreement, or to any benefit arising therefrom.

12.5 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.

12.6 This Agreement is drafted in English at the request of the Parties.

Signed on behalf of Canada by the Minister of Families, Children and Social Development at Ottawa this 23rd day of January, 2022.

[Signed by] The Honourable Karina Gould, Minister of Families, Children and Social Development.

Signed on behalf of Nunavut by the Minister of Education at Iqaluit this 21st day of January, 2022.

[Signed by] The Honourable Pamela Gross, Minister of Education.

Annex 1: Multilateral Early Learning And Child Care Framework

Federal, Provincial and Territorial Ministers most responsible for early learning and child care (ELCC) 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: Nunavut’s Canada-wide ELCC action plan for fiscal year 2021 to 2022 to fiscal year 2022 to 2023

In this section

Three official languages in Nunavut

Nunavut has 3 official languages including: Inuktut, French, and English. The collective term for the 2 Inuit languages (Inuktitut and Innuinaqtun) is Inuktut. References to official languages made in the following action plan include all 3 of these languages.

Child care age in Nunavut

In this document, child care in Nunavut refers to children up to 6 years of age until they attend full-time school. Depending on circumstance, it can include 6-year-olds who, due to their birth dates, still attend child care until they begin full-time school in Nunavut, and therefore are considered pre-school.

The Canada-wide ELCC vision

The federal government’s vision is that all families in Canada have access to high-quality, affordable, flexible and inclusive early learning and child care no matter where they live in Canada. As a result, the Government of Canada is making significant investments in early learning and child care to ensure this vision is realized.

These investments total up to $30 billion over the 5 years, and combined with previous investments announced since 2015, $9.2 billion every year thereafter, permanently. Of that amount, $27.2 billion over 5 years will support direct transfers to provinces and territories. The remaining amount is distributed to Indigenous partners to advance the vision and priorities identified in the co-developed Indigenous Early Learning and Child Care Framework including supports to increased Indigenous governance and capacity and advance self-determination of the Indigenous early learning and child care sector, and ensure that Indigenous children and families have access to affordable, high quality and culturally appropriate early learning and child care.

The Government of Canada will work with provincial, territorial, and Indigenous partners to implement key components of the Canada-wide system, including:

The Nunavut Agreement

The Nunavut Territory was created as an outcome of the Nunavut Land Claims AgreementFootnote 1 (the Nunavut Agreement), the comprehensive agreement signed by Inuit and the Crown that defines the rights and benefits of Inuit and the rights of ownership and use of lands and resources, and provides certainty and clarity around the rights of Inuit to participate in decision-making, economic opportunities, and cultural and social well-being. This agreement is protected by the Constitution of Canada, government must work in ways that respect Inuit rights.

While Nunavut is a territory with a public government, it is also the Nunavut Inuit homeland. The Nunavut Agreement established Nunavut Territory as Inuit land and instituted a distribution of roles and responsibilities for best serving and stewarding Nunavut’s land, society, and resources in a way that respects and honours Inuit interests through:

The Nunavut Agreement also established the Government of Nunavut as an elected territorial government to serve the interests of all Nunavummiut (people of Nunavut). This means the Government of Nunavut was created under an Inuit land claim, and is accountable to that in every way, every day.

The Nunavut Child Day Care Act is the legislation that describes how children should be cared for in facilities outside of their homes in Nunavut. The Child Day Care Standards Regulations were written to further explain the Act. This is governed by the Government of Nunavut Department of Education, in the Early Learning and Child Care division.

Additional early learning and child care initiatives will fill a much-needed gap in Nunavut. The provision of additional child care is an important component in ensuring that Inuit have the needed supports to participate in the workforce. These services help reduce barriers for Inuit in seeking federal and territorial public service employment.Footnote 3

Nunavut context and reality

Nunavut is populated predominantly by Inuit. Across the territory, Inuit represent 85% of the population, with distinct variations between the capital city and all other communities:

Throughout this action plan, the following should be considered:

For greater clarity, this means that every action listed in this action plan will have direct and predominant application to Inuit children, families, workers, and learners.

It is reasonable to presume that the vast majority of individuals benefitting from this action plan will be Inuit, as a result of the significant-majority Inuit populations in Nunavut communities, as stated above. The individuals benefitting from this action plan include and are not limited to:

The benefits to Inuit are aligned with the Nunavut Agreement,Footnote 4 and the Government of Nunavut’s obligations to comply with the Articles within it, and the Government of Nunavut’s mandate to serve Nunavummiut.

History

Nunavut is the product of a history of colonial settlement and Inuit self-determination.

The area currently known as Nunavut has been populated by Inuit for over 4,500 years. Inuit histories of cultural, social, and economic life account for inhabitation of the land and sea, with significant definition found in traditional language, spiritual practice, justice, multi-group gatherings and celebrations, as well as highly-skilled traditions and innovations (waterproof hide/fur preparation and sewing, transportation by qajaq and sled dog with qamutiq). Inuit also held strong social convictions around childrearing and family relationships. This history is dated both in Inuit oral generational stories and in collected artefacts from the region.Footnote 5

Early contact between outsiders and Inuit was initiated through the whaling and exploration vessels that were recorded in the area as early as the 16th century. Significant colonial efforts by missionaries, mercenaries, and the military took root from the 1930s. As justification for Arctic sovereignty, many Inuit families were relocated without consentFootnote 6, military bases were established and the Distant Early Warning (DEW line) system developed a footprint across the land. Trading posts from the Hudson’s Bay Company introduced reliance on merchandise (food, fabric, guns, ammunition)Footnote 7, Royal Canadian Mounted Police (RCMP) officers were posted to uphold southern justice systems,Footnote 8 mandatory schooling drove many Inuit families unwillingly into settlements and systemically eroded Inuktut language,Footnote 9 nursing stations provided southern medical support and also relocated Inuit with tuberculosis,Footnote 10 and missionaries were complicit in eroding Inuit cultural, spiritual, and social practices.Footnote 11 In the decades that followed, Inuit became further forced into settlements (through the sled dog slaughterFootnote 12, promises of housing, money, and employmentFootnote 13) and many children were removed from their families (and their rootedness in culture, language, and society) to attend residential schools and federal day schools that were sites of child physical and sexual abuse.Footnote 14 The injustices enacted upon Inuit are a significant part of Canada’s legacy of colonialism, and the legacy of these many injustices are at the heart of the movement for reconciliation and retribution.

In response to these overwhelming changes in Inuit life on Inuit land, an Inuit movement towards self-government to create “Nunavut” (the Inuktitut word meaning “Our Land”) was initiated in 1971Footnote 15. Negotiations continued until the Nunavut Land Claims Agreement was ratified in November 1992 and on July 9, 1993 the Nunavut Act became law in Canada. The Territory of Nunavut was formally established as the third Canadian territory in 1999, and established Canada’s first Indigenous province/territory and is by far the largest of the land claims settlements in any area in the worldFootnote 16.

Geography

Nunavut covers 1.9 million square kilometres,Footnote 17 which is equal to nearly one-fifth of the land mass of Canada.

Nunavut’s geography is a significant determinant of its activities. In Nunavut, there are 25 communities located in 3 time zones (Mountain, Central, and Eastern), all of which are fly-in communities without roadway or train systems to connect them. Few Nunavut communities have ports. All construction materials arrive by container ship in the ice-free summer season and they are barged to community beaches, or are delivered by airplane in the off seasons. The additional logistics and time required for ordering, shipping, and receiving construction and infrastructure supplies to these geographically remote communities significantly adds to the base cost of infrastructure development across Nunavut. These high costs are further magnified as the result of requiring specialized services for northern planning, development, engineering and design, and labour for construction.

Nunavut’s geography constrains standard construction practices. Much of Nunavut is located in a continuous permafrost zone, meaning the construction methods are significantly more sophisticated from the rest of Canada, and it is imperative that they account for advanced climate change. Building footprints must be based on bedrock or steel piles that are driven deep into the ground (to connect with bedrock or deep permafrost). This requires specialized planning and construction, at additional cost and requiring additional time. The building season can begin when the first sealift container ship arrives in the community. This will depend on when the winter sea ice begins to break up. Depending on the community, the first sealift is scheduled to arrive in July, however some communities will wait as late as August. Iqaluit, the capital, will see up to 4 sealift container ships, whereas other communities may only see one. As the weather gets colder in the winter, building becomes less viable. Depending on the community, due to extreme cold temperatures, most exterior construction will conclude by December. This short construction period impacts the pace at which new infrastructure can be built, resulting in significantly longer timeframes for construction than elsewhere in Canada.

Due to the geography of Nunavut, it is not possible to share regional child care spaces in Nunavut. While elsewhere in Canada it may be viable to access child care in another commutable community, in Nunavut, driving from one community to another for services or child care is not possible. The only transportation access to another community is by airplane. There are no roads or trains connecting Nunavut communities to each other, or to any major Canadian city. If there are an insufficient number of local daycare services available, or no services altogether, there are simply no further options for parents to access regulated child care in their community. What exists in a Nunavut community is all there is.

Population

Nunavut is the least populous of Canada’s provinces and territories. As the largest and most geographically remote and sparsely-settled regions in Canada, in 2021, Nunavut has an estimated population of 39,255.Footnote 18 According to the 2016 census, while the average age in Canada was 41.0, the average age in Nunavut was 27.7 years, which is the lowest in the country.Footnote 19 The table below shows the population age group distribution and average age in Nunavut and Canada in the 2011 and 2016 censuses.Footnote 20 The 2021 Census will provide additional valuable information in relation to the growth and distribution of the population in Nunavut.

Table 2: Age distribution of Nunavut population

Note: The tables below were modified for accessibility reasons.

Table 2a: Age distribution of Nunavut population in 2011
Jurisdiction Average age (years) Age group distribution 0 to 14 Age group distribution 15 to 64 Age group distribution 65 and older
Nunavut 24.1 32.7 64.0 3.3
Canada 40.6 16.7 68.5 14.8
Table 2b: Age distribution of Nunavut population in 2016
Jurisdiction Average age (years) Age group distribution 0 to 14 Age group distribution 15 to 64 Age group distribution 65 and older
Nunavut 27.7 32.5 63.7 3.8
Canada 41.0 16.6 66.5 16.9

Nunavut’s population is an inversion of the overall Canadian experience, with a large and growing population of children that account for a full third of Nunavut’s total population. In 2016, Nunavut had the highest proportion (32.5%) of children aged under 15 and the lowest proportion (3.8%) of older people over 65.Footnote 21

As a result of Nunavut’s demographics, the population projections are noteworthy. As the territory’s population continues to grow, Nunavut’s total population is projected to reach 48,042 by 2035.Footnote 22

In contrast to other jurisdictions in Canada, Nunavut’s fertility rate has remained high (2.8 to 3.0) and the majority of mothers are between 15 and 29 years old.Footnote 23

Table 3: Average live birth rates by age between 2001 and 2018
Ages Average live birth rates by age between 2001 and 2018
Under age 20 112.2
Ages 20 to 24 184.3
Ages 25 to 29 138.1
Ages 30 to 34 90.8
Ages 35 to 39 47.7
Ages 40+ 12.0

This results in a significant projection for Nunavut’s population to remain quite young.

Note: The table below was modified for accessibility reasons.

Table 4: Nunavut live birth* rates by age of mother and total fertility rate**, 2001 to 2018
Age groups 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018
Total all ages 108.7 107.4 109.3 105.2 96.1 100.2 104.4 105.8 112.5 104.3 103.4 103.0 110.5 107.8 102.8 107.9 105.4 101.1
Under age 20*** 120.6 120.8 121.4 124.7 107.6 118.1 114.9 113.3 107.2 101.6 106.0 100.2 126.8 103.6 112.3 113.6 109.9 97.0
Ages 20 to 24 213.1 204.5 194.9 185.3 165.4 172.9 193.1 201.4 195.9 195.6 185.7 185.7 192.4 170.7 161.8 162.7 169.1 168.1
Ages 25 to 29 124.4 136.5 149.8 143.9 126.7 131.2 123.0 132.3 138.9 144.2 139.3 129.1 130.7 153.4 147.7 151.9 140.9 141.5
Ages 30 to 34 87.7 84.8 96.9 81.6 89.7 79.4 96.2 82.8 110.7 73.6 80.1 93.6 94.5 102.7 91.1 99.6 87.9 101.6
Ages 35 to 39 39.8 44.8 40.4 46.8 40.8 42.5 43.8 45.0 54.9 49.6 49.9 49.9 58.9 52.2 41.8 47.0 67.4 43.0
Ages 40+**** 20.2 11.6 9.6 4.6 10.1 13.8 12.2 12.1 20.5 12.5 9.7 10.5 5.8 10.9 9.3 21.0 8.5 13.8
Total Fertility Rate 3.0 3.0 3.1 2.9 2.7 2.8 2.9 2.9 3.1 2.9 2.9 2.8 3.0 3.0 2.8 3.0 2.9 2.8

Nunavut is experiencing a growing population of babies and young children of appropriate age for daycare. This number outpaces the population of babies and young children in other jurisdictions in Canada.

Notwithstanding Nunavut’s continued child population growth, the territory’s existing daycare infrastructure faces significant challenges. Daycares are operating out of some of the community’s oldest buildings, and are barely held together simply out of community need. Buildings that were originally constructed in the 1970s, 1980s and 1990s have seen few repairs or upgrades; and many daycare facilities are operating well outside of current building codes.

In a recent study, several daycare facilities in the Qikiqtaaluk region have been recommended for demolition over repair due to their poor state. The pressure on daycares to accept more children is high, and it is likely that once opportunity is presented to communities for accessible, affordable, inclusive, and quality daycare, the demand will well outnumber what these facilities can handle.

Similar to the geographic constraints in accessing daycare spots, in Nunavut’s sparsely populated communities there are only so many adult workers to fill all available jobs, including ELCC roles. Workers cannot commute between communities to work. The consequence of a large child and youth population in Nunavut and the known geographical constraints is a comparatively small adult population available to work and provide services for community economies. Taking into consideration that small population centres in Canada have populations up to 29,999 residents, it is plain to see that Nunavut, with an adult population of only 22,255 Footnote 24 in the 2016 Census, is at a distinct disadvantage for recruiting and retaining ELCC workers in light of job availability and competition across Nunavut.

Community populations

Within Nunavut’s 25 communities, there are distinct systemic drivers and barriers to employment that create entirely unique local economies. It is necessary to acknowledge that Nunavut’s wide diversity of local economies cannot be perceived as a whole with any accuracy.

When delivering services and funding for Nunavut communities, it is essential to consider their unique context and history. Each of these communities was established only 45 to 70 years ago, through forced settlement and subsequent total disruption of Inuit nomadic society. During this massively colonizing time, Inuit nomadic societal groups were thrust together to permanently settle in government-selected locations against their will and often coerced with false promises (housing, money). Governments have a responsibility to serve the needs of Inuit in these communities in alignment with the values and principles of reconciliation and retribution. This includes serving the actual and required child care needs of each community, uniquely and significantly.

Nunavut communities also have government-imposed economic systems that determine employment opportunities. One of the significant outcomes of the establishment of Nunavut Territory and the creation of the Government of Nunavut is the decentralization of government employment, in an attempt to locate some government offices in some communities outside of the territorial capital of Iqaluit. There are 14 “decentralized communities” in Nunavut, which include offices for the Nunavut Housing Corporation (Kinngait), the Department of Economic Development and Transportation – Motor Vehicles (Gjoa Haven), Community and Government Services’ Planning (Kugluktuk), the Nunavut Bureau of Statistics (Pangnirtung), the Department of Economic Development and Transportation – Small Business (Pangnirtung), and the Department of Education – Curriculum (Arviat), to list a few. The remaining 10 “non-decentralized” communities have no additional territorial government employment presence locally, outside of core health employees (that is, nurses) and education employees (that is, school-based positions).

It must be noted that the private mining sector also is a strong factor in community employment and economic gain. Some communities have a strong employee-base in the local mines, for example Pangnirtung, Clyde River, and Igloolik for Baffinland, Rankin Inlet for Agnico Eagle, and Baker Lake for the Meliadine Mine. These mines generally involve block shifts for several weeks at a time.

Communities are also distinct by way of their population size and growth rate. According to 2017 statistics, Iqaluit’s population was 8,011 with 705 children aged 0 to 4 years, and Rankin Inlet had the second largest population in Nunavut at over 2,687 people with 367 children aged 0 to 4 years.Footnote 25 In contrast, Grise Fiord and Resolute Bay have the 2 lowest populations in Nunavut. In 2017, Grise Fiord had a population of 142 people (0 children aged 0 to 4 years) and Resolute Bay had a population of 247 people (20 children aged 0 to 4 years).Footnote 26 These extremes signal the need for a thoughtful strategic approach to assessing, designing, and developing ELCC for children in every community across the territory.

Impact of Nunavut’s context on daycare provision and growth

The realities of Nunavut’s population as described above demonstrates a need to implement early learning and child care in ways that serve its population, comply with its constraints, and reasonably fill its deep gaps.

Nunavut is starting with the fewest number of existing daycares (and spaces) per capita, yet has the largest proportion of children, and highest projected growth rate, of any Canadian province or territory.

Indigenous population in Nunavut

Compared to other provinces and territories, Nunavut has by far the largest proportional Indigenous population, with Inuit representing 85% of the total territorial population. There is a significant proportion of Indigenous children in Nunavut compared to other jurisdictions.

The high population of Inuit children in Nunavut and the high percentage of children in the Nunavut population are strong justifications for the allocation of appropriate time and money in this agreement, to redress the historical inequity experienced by Inuit families and communities and to advance reconciliation.

Inclusion for children living with disabilities in Nunavut

According to the Nunavut Human Rights Act of 2011, the term “disability” now means any previous or existing or perceived mental or physical disability, and includes disfigurement and previous or existing dependency on alcohol or a drug.

According to data from Statistics Canada, 14.3% of Canadians report having a disability.Footnote 27 This is consistent with the United Nations’ estimate of 15% of the world’s population living with some form of disability.Footnote 28 However, McGill University’s Professor James MacDougall reported in 2006 that the overall rate of disability in the Indigenous population in Canada is estimated to be much higher than in the general population, at least double (32%) that of the general population.

Considering Nunavut’s population of 0 to 4 year-olds numbered 4,366 in 2017,Footnote 29 with Inuit children the majority of this age population, this calculates to an estimated 1,397 children between 0 to 4 years old who are living with disabilities.

Additionally, there is an increasing awareness and diagnostic opportunity for Nunavummiut identifying with Fetal Alcohol Spectrum Disorder (FASD). FASD covers a range of mental and physical disabilities, and is the most common cause of developmental disability in Canada. Its prevalence in Nunavut has never been measured; however, nationally, the rates of FASD have been estimated at 4% of the population.Footnote 30 A study released in April 2019 by Dr. Svetlana Popova of the Centre for Addiction and Mental Health found that FASD is higher in Indigenous populations, children in foster care, correctional inmates and other vulnerable groups.Footnote 31 Diagnosis requires significant attention in Nunavut; recently it was recognized through the initiation of a new pediatric unit at Qikiqtani General Hospital that is undertaking FASD diagnosis.Footnote 32 FASD is a lifelong disability, and the volume of people living with FASD throughout their lives, as children, youth, and adults, is projected to be a substantial number in Nunavut.

Nunavut remains far behind in the delivery of supports, increased awareness, physical inclusion, psychological compassion and understanding, and disability education.

Racial equity in Nunavut

As everywhere in Canada, racialized inequity for visible minorities is experienced regularly in Nunavut. There is significant anti-racism work to do regarding the fight against racial inequality for Muslim, Afro-Caribbean, Asian, LGBTQ2+, and Inuit across Nunavut.Footnote 33

Vulnerable children in Nunavut

There are significant strides required to counter the physical safety and social isolation and stigma of vulnerable children of Nunavut. These children become retraumatized through the system, and require access to safety and healing.

The Government of Canada’s goals in the ELCC Agreement

The Government of Nunavut acknowledges that the Government of Canada is committed to ensuring 59% of all children ages 0 to 5 have access to an average of $10 a day child care by March 2026.

To meet this goal, Nunavut will need to provide new access to additional public daycare spaces in a manner that meets the ELCC needs in each of its unique 25 communities. The Government of Nunavut also needs to address the funding, staffing, and infrastructure gaps within existing ELCC facilities. The details of these are both currently insufficiently known and are included as actions in phase 1 of the action plan.

We anticipate that the number of child care spaces required will vary significantly by community, due to population size differences, the economic ability to afford this daycare, and the number of staff available to work at the ELCC centres. The details of these are both currently insufficiently known, and are included as actions in phase 1 of the action plan.

Infrastructure is old in all communities, and some daycare facilities are the oldest in the community. The Government of Canada is a core partner in developing additional daycare facilities in Nunavut communities, similar to the recent daycare built in Iqaluit (Tundra Buddies).

The types of housing in Nunavut present a challenge to increasing the diversity of daycare offerings. Currently, to start and run a home-based daycare, you must have approval from a private landlord or own a home. However, there is very limited private rental housing in communities and nearly no private real estate market for houses. People living in social housing and government staff housing are not permitted to run licensed daycares.

Due to a lower adult population, some communities may have fewer people available to be employed. This is related to the benefits and barriers in social assistance and its relationship to housing, education, and employment.

Access to land for development or construction is a hurdle in Nunavut communities. Most communities do not have a lot of land available for development, and any developed land that exists (ready for construction) is in very high demand by many competing interests. Land development costs for Iqaluit are currently costed using a multiplier of 2.5, and this number will be significantly higher in other smaller communities due to additional transportation costs and lack of scaling opportunities.

In the initial phase of the ELCC Agreement, time is of core importance. Having sufficient time to plan a strong strategy and to enact the strategy with deliberation and care is crucial. It takes time to significantly ramp up activity and build a core foundation as a base for the next 3 years of the agreement.

Early learning and child care in Nunavut

Early Learning and Child Care in Nunavut is a shared responsibility between the Government of Nunavut, Nunavut Tunngavik Incorporated, the Regional Inuit Associations, and non-profit daycare societies.

Government of Nunavut

In the Government of Nunavut, under the Department of Education, the ELCC division is responsible for licensing child care facilities for children aged 0 to 6 in the territory. The division is responsible for governance, policy and planning of early learning and child care initiatives under the Child Day Care Act and Regulations.

The Early Learning and Child Care Division promotes quality care and education for children by licensing, inspecting, and providing guidance and support to all licensed child care facilities to ensure compliance with the Child Day Care Act and regulations. The Child Day Care Act is the legislation or law that describes how children should be cared for in facilities outside of their homes in Nunavut. The Child Day Care Standards Regulations further explain the Act.

By authority of the Child Day Care Act and Regulations, the division is responsible for licensing and monitoring ELCC facilities. The ELCC division currently serves 1,082 licensed daycare spaces for children aged 0 to 6, before children attend full-time school. The division has regional offices that act as liaisons between providers and the ELCC division to manage applications and organize services.

The division also promotes early childhood development by providing inclusive support for children of all abilities between 0 to 6 years of age, developing language and culturally relevant resources and providing training opportunities for early childhood program educators, staff, and parents.

The Department of Education firmly believes in the positive outcomes associated with access to ELCC programs and services. Research conducted in this area has revealed, time and time again, the numerous developmental benefits for children, many of which have lasting implications into adolescence and early adulthood. The Department of Education believes that ELCC provides a solid foundation for a lifetime of learning and development. It is this foundation which allows for the development of the whole child, including areas related to health and well-being and language acquisition, both of which are of significance in Nunavut.

The Department of Education also acknowledges the role that ELCC plays in terms of reducing barriers to greater labour force participation. Parents need access to safe, reliable, affordable child care options so that they may pursue education, professional development, and employment opportunities.

In line with these views, the Department of Education supports the delivery of ELCC programs and services to:

The ELCC division is currently made up of 10 government employee positions:

Nunavut Tunngavik Incorporated

NTI leads the Inuit-specific Indigenous Early Learning and Child Care (IIELCC) work in Nunavut. It coordinates IIELCC with the territorial and regional Inuit organizations along with stakeholders including the Government of Nunavut’s ELCC division, the Nunavut Arctic College (NAC), and regional economic development organizations (as appropriate). NTI is the chair of the Inunnguinirmut Committee, a working group of these organizations to coordinate and align IIELCC activity in Nunavut. NTI has a staff position for an Early Childhood Wellness Policy Advisor, who works with the Assistant Director, Social within the Department of Social and Cultural Development.

NTI has the right to share what they choose with the Government of Nunavut regarding IIELCC funds, which reflects the nature of Inuit self-determination in Nunavut. NTI has the authority to distribute IIELCC funding according to its own plans, policies, and procedures. As the chair and facilitator of the Inunnguinirmut Committee, NTI sets the agendas and meeting schedule, and oversees reporting.

The Government of Nunavut will keep the Government of Canada informed about its work with NTI and the Inunnguinirmut Committee, including outcomes of consultations through the Implementation Committee and in the annual report for the Canada-wide ELCC Agreement.

Regional Inuit Associations

Regional Inuit Associations (RIAs) are involved in child care in Nunavut in a variety of different ways.

When NTI receives IELCC funding, there is an allocation that is disbursed to the RIAs. The RIAs are responsible for selecting their own investments in child care in their region for directing the funds to the benefit of Inuit child care. To date, the RIAs have taken distinct action to support their unique regions. For example, the RIAs have offered parental fees, and/or Grants and Contributions, and/or hired a specialized staff member dedicated to child care.

The Government of Nunavut continues to work in collaboration with the RIAs along with NTI to complement investments for the highest level of benefit for Inuit child care across Nunavut. The GN also focuses on ensuring investments are not duplicated, and that they are aligned.

Non-profit daycares

All daycares in Nunavut are non-profit or home-based daycares. These include daycare centres, pre-schools (including Aboriginal Head Start Programs, which are also licensed by the territory), and individually licensed family day homes. The Government of Nunavut is looking at every option for increasing the number of non-profit daycare spaces in the territory. The GN wants to ensure quality licensed daycare spaces are available according to the highest standard.

Most daycares are governed and run by daycare societies or local District Education Authorities, both with elected boards of directors. There are a few daycares that are run by Hamlets, with staff on municipal payroll, and advisory committees who provide input.

There is no data about unlicensed child care in Nunavut. The GN is aware it is happening, and would like to clarify numbers across the territory and reverse this practice.

Early learning and child care frameworks

Multilateral Early Learning and Child Care Framework

The Multilateral Early Learning and Child Care Framework sets the foundation for governments to work toward a shared long-term vision where all children can experience the enriching environment of quality early learning and child care that supports children’s development to reach their full potential. The Framework identifies areas of focus to increase quality, accessibility, affordability, flexibility, and inclusivity in early learning and child care, with consideration for those more in need. It also recognizes diversity and promotes early learning and child care systems that are respectful of language and culture, including the unique needs of Indigenous peoples and French minority communities.

Indigenous Early Learning and Child Care Framework

The Indigenous ELCC Framework represents the Government of Canada and Indigenous peoples’ work to co-develop a transformative Indigenous framework that reflects the unique cultures, aspirations, and priorities of First Nations, Inuit, and Métis children across Canada. These bilateral agreements are between Canada and Indigenous governments. As with the Multilateral ELCC Framework, the Indigenous ELCC Framework 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 centred on children and grounded in culture. Nunavut recognizes the importance of working collaboratively with Inuit organizations to ensure that Indigenous children living in the territory have access to affordable, high-quality, and culturally appropriate early learning and child care programming.

ELCC in Nunavut: challenges and opportunities

The impact of Nunavut’s remoteness on the delivery of ELCC programs and services is such that the cost of establishing, operating, and maintaining ELCC centres is staggeringly high. Individuals and non-profit organizations across Nunavut seek licenses to operate regulated ELCC centres, but high capital costs, ongoing maintenance, and other operational difficulties often result in centres opening, just to close in a few years, resulting in inconsistent services for many communities. In addition to these high costs, developing and maintaining infrastructure is often extremely challenging because of an insufficient supply of building materials and contractors given that all supplies must be flown into communities. The high cost of operating ELCC programs, coupled with a very large, young population, places a considerable burden on Nunavut’s ELCC system.

Challenges related to training, recruitment, and retention of qualified ELCC staff are seen across Nunavut. Very few ELCC educators have any type of formal ELCC training which reduces the desire to work within the field. Many centres hire staff who are willing to work for low wages, but due to lack of training and competitive wages, many choose to leave the field within a short time. This creates a revolving door of ELCC educators which hinders the ability to keep centres open to full capacity or to provide high-quality child care.

Competitive wages are needed to recruit and retain interested people to work within the ELCC sector. Enhanced training and understanding of children’s needs, programming, and day-to-day operations of a high-quality child care system are also highly needed. Providing specialized professional development and training opportunities, competitive wages, and services that meet the needs of communities is key to the growth and stability of ELCC in Nunavut.

System gaps in ELCC programs in Nunavut persist due to challenges compounded by the remote nature of all of Nunavut’s communities and the increasingly high cost of services. ELCC programs and centres face increasing operations and maintenance costs along with the need for competitive wages, resulting in regular increases to parental fees to remain operational.

Consultation informing the ELCC Agreement

Despite consultation challenges related to the COVID-19 pandemic, there has been significant and meaningful consultation conducted with key stakeholders regarding the ELCC Agreement.

The Government of Nunavut engaged with stakeholders listed below through targeted conversations in September and October 2021:

There were also initial conversations held with the following organizations to confirm their interest and capacity for their involvement in the action plan:

This recent work is built upon past consultations. In 2017, the Department of Education identified the need to consult with a range of partners and stakeholders to capture unique perspectives on ELCC in Nunavut.

Partner and stakeholder organizations consulted included:

Representatives from each of the organizations identified above were invited to take part in regional consultation sessions or interviews. Face-to-face sessions were held in Iqaluit and Rankin Inlet and interviews were conducted by telephone in Cambridge Bay. Consultations focused on the identification of ELCC priorities, areas of need and investment opportunities in support of the identified priorities and areas of need.

In light of the Canada-wide vision and in support of a universal early learning child care system in Nunavut, the Government of Nunavut will undertake research, consultations, and analysis in the phase 1 action plan (fiscal year 2021 to 2022 to fiscal year 2022 to 2023) of the ELCC Agreement to inform the development of the phase 2 action plan (fiscal year 2023 to 2024, fiscal year 2024 to 2025, and fiscal year 2025 to 2026).

From the results of the Department of Education’s consultations to date, in support of a universal early learning child care system in Nunavut, and consistent with the Multilateral and Indigenous ELCC Frameworks, 5 broad ELCC commitments have been identified in this action plan that will address gaps in the ELCC system and increase access to high-quality, affordable, flexible, and inclusive early learning and child care spaces for families across Nunavut.

Five key areas of focus

1. Improve affordability

Mechanism 1.1: Parental fee reduction
Description

Reduce parental fees to increase affordability of full-time child care in all Nunavut communities.

Discussion

There are currently 1,082 licensed child care spaces in Nunavut for children up to 6 years old until they attend full-time school. Child care fees will be reduced by 50% by December 2022 from average fees in 2019 through the creation of financial agreements with daycares.

The Government of Nunavut currently has no comprehensive data for parental fee rates across the territory. Part of this action plan is to compile accurate data to use for future planning. Using currently available data, the parental fees across the territory range from $45 to $65 per day for 1 child. Using that data, the average child care fees across the territory in 2019 were estimated to be $53.97. By December 2022, these fees will be reduced to an average of $26.99 per child per day.

These fees are determined based on the number of children in the facility, facility rent, programming delivery, resource availability, and food availability provided. Through the creation of a comprehensive contribution agreement, the Government of Nunavut will be able to provide financial support to reduce parental fees in 38 full-time and 22 part-time licensed facilities for children up to 6 years old until they attend full-time school in the territory to provide appropriate individual funding agreements.

These funding agreements will outline the current per day cost to parents and provide an accommodating funding amount. The funding agreements will be signed annually through the work of the Department of Education’s regional Early Childhood Officers. Reporting requirements will include monthly attendance rates and proof of applying funding directly to child’s daily rate of any or all expenditures of the program. The Government of Nunavut reserves the right to conduct an audit of any project funded through a grant or contribution program.

Subsequent decreased territory-wide, $10 a day, full-time child care fees will be introduced by March 2024. A similar financial mechanism will be used for this decrease.

This initiative will be conducted in collaboration with Nunavut Tunngavik Incorporated and the Regional Inuit Associations in Nunavut, who are stakeholders and funders in the Nunavut child care system.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, the parental fees for full-time child care will have decreased by 50%, to provide more Nunavut families with affordable daycare.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

The Government of Nunavut will reduce full-time child care fees to $10 a day by March 2024 and will continue the reduced parental fees for the duration of this agreement.

Table 5: Overview of parental fee reduction initiative (Affordability)
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
50% reduction in parental fees territory wide Plan to reduce Nunavut parent fees, which are approximately an average of $53.97 a day to $26.97 a day Prepare and sign financial agreements for up to 1,082 licensed or regulated child care spaces by December 2022 $4,280,000.00 $4,280,000.00

2. Support access

To meet the needs of Nunavut families, and to increase access to early learning and child care, initiatives in fiscal year 2021 to 2022 to fiscal year 2022 to 2023 will focus on developing a plan to create spaces across the territory in a manner that is suitable for the unique needs of each community. The next action plan will focus on increasing the net number of regulated spaces for children aged 0 to 5. Further work will continue through the Implementation Committee to find innovative solutions to the access of child care spaces, recognizing that demand will increase over time.

Where federal funding is used to support new child care spaces in the territory, that federal funding will be used exclusively to fund new spaces operated by non-profit, public, and family-based child care providers.

Through the fiscal year 2021 to 2022 to fiscal year 2024 to 2025 Canada-Nunavut ELCC Bilateral Extension Agreement, initiatives also support all regulated, non-profit operational centres in all communities to ensure that they remain open and have the resources they need to deliver effective programming. Through this agreement, the Department of Education will also continue to support regulated ELCC centres that are currently closed and inoperative, or about to collapse without immediate support, with priority placed on those in underserved communities.

The Government of Nunavut will aim to increase the number of licensed child care spaces for children up to 6 years old until they attend full-time school, by at least 238 full-time equivalent spaces by the end of fiscal year 2025 to 2026. Updates on the implementation will be provided as part of the next action plan covering fiscal year 2023 to 2024 to fiscal year 2025 to 2026.

As part of increasing access, the Government of Nunavut will collaborate with new build infrastructure. This is an innovative solution, and a way of leveraging spaces out of every possible new build opportunity. In the same vein as the Department of Education’s commitment to including daycare spaces in every new school build, efforts to replicate this innovative model will be encouraged for any new builds in the territory.

The following table presents a projected breakdown of new daycare spaces per year for this agreement.

Table 6: Total increased spaces by year (2021 to 2026)
Fiscal year New licensed home daycares (including foster-focused) New school-based daycare spaces Community-based daycare spaces Increased number of daycare spaces each year
2021 to 2022 n/a n/a n/a n/a
2022 to 2023 30 n/a n/a 30
2023 to 2024 to 2025 to 2026 18 172 18 208
Total n/a n/a n/a 238

The number will increase from the current existing base number of 1,082 daycare spaces to 1,320 daycare spaces at the end of the ELCC Agreement. This number represents what is possible to achieve in Nunavut within the limitations of a 5-year timeline using the funding allocation provided. Nunavut’s needs for child care are significant, and the Government of Nunavut will continue to pursue longer-term plans to enhance access to child care across the territory, using a timeframe that works for Nunavut’s construction challenges. Space creation will remain a top item of discussion for the second action plan, with support from the implementation committee to explore how to address issues related to expansion of child care spaces in the territory.

Mechanism 2.1: Increase the number of licensed home daycares
Description

Increase the number of home daycares across Nunavut by assisting with the licensing or regulation process and assisting with the set-up of new licensed family daycares specifically oriented for children living in foster care.

Discussion

One alternative to stand-alone, non-profit daycare centres is home daycare facilities. The regulations on home daycares only allow for up to 4 children in the care of one adult before there is a need to become licensed. Once a home daycare operator is licensed, they have an opportunity to take on more children. Many unlicensed providers do not become licensed due to the burdensome administrative requirements associated with obtaining and maintaining a license.

The Department of Education recognizes that there are a number of unlicensed child care spaces, which reflects the need and the high demand for child care in the territory. Currently there is no data about unlicensed child care in Nunavut, but the GN is seeking to clarify this to aid efforts. The department is motivated to decrease the number of unlicensed child care spaces to ensure quality regulation, according to the highest standard. Licensing of unlicensed providers is intended to increase the health, safety, and well-being of children participating in home-based child care settings by ensuring that these providers are adhering to existing regulations for home-based child care as set out in the Child Day Care Standards Regulations. The first target is for 30 unlicensed spaces to become licensed across the territory. The department will update on findings at the time of reporting and in the action plan for fiscal year 2023 to 2024 to fiscal year 2025 to 2026.

As of July 2020, there were approximately 140 approved foster homes, in which there were 306 children placed.Footnote 34 Many foster families have taken on the ward of vulnerable children, and these foster families have working parents who still require child care. Currently daycares will not take foster children as they are already operating at capacity. Foster children are by circumstance highly vulnerable; they have high needs that require special daycare environments, including ELCC workers with more training in creating safe environments and delivering crisis support. These specialized daycares also will serve the needs of children who require temporary care, to accommodate the fluid movement of children when in the foster care system in Nunavut. By assisting in creating home-based, licensed, targeted daycares for foster children, we will provide spaces for these vulnerable children as needed. The target is for 18 spaces in the territory to become licensed and dedicated to serving the needs of foster children.

By licensing both of these types of home daycares, it not only increases the number of daycare spots in the territory that have access to the benefits in the ELCC Agreement (that is, affordability, inclusivity, and quality), it increases the opportunity to report on the full activity of child care services provided in Nunavut. Additionally, it must be noted that where federal funding is used to support new child care spaces in the territory, that federal funding must be used exclusively to fund new spaces operated by non-profit, public, and family-based child care providers.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, the number of licensed home daycares will have increased to provide more children with access to licensed daycare spaces in Nunavut.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

The Government of Nunavut will create 48 new daycare spaces by assisting unlicensed daycares to become licensed and regulated by fiscal year 2025 to 2026. The 5-year target includes 18 new spaces for foster home daycares, and 30 new spaces for home daycare.

Table 7: Overview of initiative to increase the number of licensed home daycares (Access)
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
2 new Early Childhood Officer positions hired 2 new Early Childhood Officer position competitions initiated 2 new Early Childhood Officer position competitions fulfilled, and 2 new dedicated positions filled

Increase the number of licensed home daycares across Nunavut from 5 to 10, resulting in 30 new spaces		 See Mechanism 5.1 See Mechanism 5.1
Develop workplan and resources for new and existing home daycares Develop a plan for assisting the unlicensed sector to become licensed and regulated Deliver the plan for assisting the unlicensed sector to become licensed and regulated

Engage with NTI and RIAs regarding Inuktut resources in support of Inuit family values for childrearing		 $10,000.00 $50,000.00
Mechanism 2.2: Support societies to increase the number of daycares and access to daycare spaces
Description

Support new and existing societies or organizations to start up and sustain daycares in Nunavut communities, to support community capacity for daycare management and governance. The focus is on societies.

Discussion

In Nunavut, daycare societies are non-profit organizations that fall under the regulation of the Nunavut Societies Act. These societies are run by a volunteer board of directors who oversee the governance of the organization. Largely these societies will hire a manager or director to handle the operations of the daycare, but board members are often required to provide extra support to daycare staff.

There are known challenges in initiating and operating daycare societies in Nunavut. These challenges include having limited access and support to gain practical knowledge about reporting, compliance, financial management, human resources management, and not having enough support to apply this knowledge in local contexts. By providing societies with targeted support, in written and verbal formats, new and existing daycare societies will have access to this information and to guidance and mentorship to strengthen their operations and establish routines that demonstrate strong governance and management. Providing daycare societies with support to become established and sustainable in their operations is a core factor in the success of new and existing daycares societies, regardless of where their facilities are located.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, a pilot project will have laid the groundwork for at least 2 new startup daycare societies to get what they need to initiate a daycare, and govern and manage it sustainably.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

Table 8: Overview of initiative to support societies to increase the number of daycares and access to daycare spaces
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Handbook for Nunavut daycare society start-up work complete Initiate the development of a Nunavut daycare societies handbook focusing on child care board governance
  • Finalize the Nunavut daycare societies handbook
  • Initiate a pilot project to support 2 new societies, including training
 $20,000.00 $200,000.00
Mechanism 2.3: Investigate use of other community venues for new daycares
Description

Investigate the potential use of other community venues to be used for new daycares, to increase access to child care in communities.

Discussion

For daycare spaces to be developed across Nunavut, there must be a focus on developing a plan to create spaces in a manner that is suitable to the unique needs of each community. This means being creative about finding local community venues that could work as new daycare facilities. In each of Nunavut’s 25 communities, the list of possible locations and venues will differ significantly. Targeted Nunavut-wide studies will confirm opportunities. The department will be looking into spaces that would be appropriate for children up to 6 years old until they attend full-time school, including infants, toddlers, and pre-school-aged children.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, we will have used a systems approach to assemble a list of other community venues that could serve as ELCC centres to increase child care spaces in Nunavut communities. Some of these community venues will have been selected for development into an ELCC centre.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

The Government of Nunavut will identify 3 community-based daycare locations, one in each region of Nunavut. The target is 18 licensed daycare spaces accessed through existing local community space.

Table 9: Overview of initiative to investigate use of other community venues for new daycares
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Develop a systems approach to identifying new community venues for daycares Initiate search for appropriate community venues for full-time daycare Continue search for appropriate community venues for full-time daycare $75,000.00 $338,428.20

3. Support inclusivity

The Government of Nunavut acknowledges the requirements of this agreement to support and promote inclusion in daycares in Nunavut. To that end, we will work towards the following 3 actions:

  1. develop and fund a plan to ensure that vulnerable children and children from diverse populations have equitable access to regulated child care spaces, in proportion to their presence in the population
  2. by the end of fiscal year 2025 to 2026, all vulnerable children and children from diverse populations, no matter where in the province or territory they live, have increased access to regulated child care
  3. develop and fund a plan to enhance inclusion of all children with disabilities and children needing enhanced or individual supports
Mechanism 3.1: Develop a strategic action plan for ELCC inclusion and equity
Description

Develop a plan that addresses ways of enhancing inclusion of children with disabilities and children needing enhanced or individual supports, as well as ensuring that vulnerable children and children from diverse backgrounds have access to licensed or regulated child care spaces. This Strategic Action Plan for ELCC Inclusion and Equity will provide guidance and direction for all ELCC stakeholders. This strategic action plan will be completed in consultation with NTI and representative community groups to address support for foster children, and involve the Nunavummi Disabilities Makinnasuaqtiit Society and the Black community, to increase equity and inclusion in ELCC in Nunavut.

Discussion

The Government of Nunavut is committed to ensuring that obligations in Article 32 of the Nunavut Agreement are met effectively and constantly, through meaningful engagement and collaboration with Nunavut Inuit and Nunavut Tunngavik Incorporated to ensure enhanced social and cultural well-being of Nunavut. This commitment was reinforced in the Katujjiqatigiiniq Protocol signed in 2020. This means that the GN ELCC division is dedicated to working together with NTI and the Regional Inuit Associations (RIAs) to ensure Inuit children are respected and appropriately represented in this Action Plan for the ELCC Agreement. This means adopting Inuit-centred principles for inclusion and equity in ELCC in Nunavut, in relation to Inuit Qaujimajatuqangit.

The Government of Nunavut is also interested in working with non-governmental organizations representing target groups in this ELCC Agreement, including the Nunavummi Disabilities Makinnasuaqtiit Society, the Nunavut Black History Society, and l’Association des francophones du Nunavut, to harness Nunavut-specific expertise for strong inclusion and equity in ELCC within our specific context.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, with NTI’s support, the Government of Nunavut will adopt a Strategic Action Plan for Inclusion and Equity that provides guidance and direction on inclusion to all ELCC stakeholders in Nunavut.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

Table 10: Overview of initiative to develop a strategic action plan for ELCC inclusion and equity
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Strategic Action Plan for ELCC Inclusion and Equity Begin a strategic action plan Continue the development of a Strategic Action Plan for ELCC Inclusion and Equity $20,000.00 $70,000.00
Mechanism 3.2 : Engage Nunavut experts in children with disabilities to strengthen and inform the strategic action plan for ELCC inclusion and equity
Description

Engaging with the Nunavummi Disabilities Makinnasuaqtiit Society (NDMS) will harness local subject-matter expertise for a robust action plan, and strengthen connections between Nunavut disability representatives and local ELCC centres.

Discussion

The Department of Education will invite NDMS to participate in the development of the Strategic Action Plan for ELCC Inclusion and Equity, to harness their expertise and to ensure representation. Furthermore, the ELCC division will discuss with NDMS contracting opportunities for specific work, including creating educational and promotional materials for inclusion in ELCC centres in Nunavut in fiscal year 2021 to 2022 to fiscal year 2022 to 2023 and developing a plan to enhance educational activities using these materials for 2023 to 2026.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, the ELCC division will have engaged the Nunavummi Disabilities Makinnasuaqtiit Society to provide expert advice alongside educational and promotional materials to increase the supportive inclusion of children living with disabilities and children needing enhanced or individual supports, in ELCC centres in Nunavut.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

Table 11: Overview of initiative to engage Nunavut experts in children with disabilities to strengthen and inform the strategic action plan for ELCC inclusion and equity
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Educational and promotional materials specific to the inclusion of children with disabilities, and children needing enhanced or individual supports, in ELCC centres in Nunavut Develop a plan to enhance educational activities for Nunavut ELCC centres regarding children with disabilities and children needing enhanced or individual supports Create educational and promotional materials specific to the inclusion of children with disabilities and children needing enhanced or individual supports $0 $10,000.00
Mechanism 3.3: Engage Nunavut experts in diverse and racialized children to inform the strategic action plan for ELCC inclusion and equity
Description

Engaging with the Nunavut Black History Society (NBHS) will harness local subject-matter expertise for a robust action plan and strengthen connections between Nunavut Black and diverse population representatives and local ELCC centres.

Discussion

The Department of Education will invite NBHS to participate in the development of the Strategic Action Plan for ELCC Inclusion and Equity, to harness their expertise and to ensure representation. Furthermore, the ELCC division will discuss with NBHS contracting opportunities for specific work, including creating educational and promotional materials for equity in ELCC centres in Nunavut in fiscal year 2021 to 2022 to fiscal year 2022 to 2023 and developing a plan to enhance educational activities using these materials for 2023 to 2026.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, the ELCC division will have engaged the Nunavut Black History Society to provide expert advice alongside educational and promotional materials to increase equity for children from diverse populations in ELCC centres in Nunavut.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

Table 12: Overview of initiative to engage Nunavut experts in diverse and racialized children to inform the strategic action plan for ELCC inclusion and equity
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Educational and promotional materials specific to creating more equitable environments for children from diverse background in ELCC centres in Nunavut Develop a plan to create educational and promotional materials specific to creating more equitable environments for children from diverse backgrounds Create educational and promotional materials specific to creating more equitable environments for children from diverse backgrounds $0 $10,000.00
Mechanism 3.4: Enhance ELCC support for vulnerable children in foster care
Description

Enhancing support to vulnerable children in foster care, to increase their inclusion in ELCC programming, promotes greater social inclusion and a renewed sense of community belonging.

Discussion

Vulnerable children in foster care in Nunavut have needs that overlap with and exceed foundational inclusion and equity in ELCC. These children require additional support for specific social inclusion and community and family belonging. By enhancing supports for foster-focused family child care, these children will be able to receive targeted, unique, and specific care and development support that meets them where they are at. This systems-support approach is intended to provide the greatest flexibility and support while maintaining a child-centred approach involving quality child care and unique approaches to community and family inclusion.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, foster care families will receive support and professional development to increase the inclusion of vulnerable children in ELCC centres in Nunavut.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

Table 13: Overview of initiative to enhance ELCC support for vulnerable children in foster care
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Plan to support foster-focused child care in Nunavut Develop a plan to license and regulate foster-focused family child care Deliver the plan to license and regulate foster-focused family child care $0 $10,000.00
Mechanism 3.5: Deliver quality ELCC resources to official languages minority children (French, Inuinnaqtun, Inuktitut)
Description

Delivering quality official language resources to minority language children in ELCC will enhance inclusivity and bolster awareness and pride in minority languages and cultures in Nunavut.

Discussion

The Department of Education remains committed to providing multilingual education and supporting the use of any of Nunavut’s languages of instruction. Nunavut has 3 official languages: Inuktut (including Inuktitut and Inuinnaqtun), French, and English. Inuktut is the first language of most Nunavummiut.

The ELCC division understands that exposure to language is best initiated at an early age, when the mind of a child is at its most receptive. Given this, the Department of Education recognizes the important role of ELCC in supporting the teaching and practice of official languages. The Department of Education is committed to providing educational resources needed to effectively promote Inuktitut, Innuinaqtun, and French in ELCC centres, through the creation and distribution of resources representing Inuit culture and language that is crucial for language and play-based activities that represent children’s surroundings. All resources are available in each of the official languages and provided to child care facilities in their choice of language. Additionally, the Department of Education is committed to continue to provide ELCC professional development in all official languages of Nunavut.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, official languages minority children will have access to quality resources in their own language in ELCC centres in Nunavut, bolstering awareness, pride, and inclusion.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

By fiscal year 2025 to 2026, the Government of Nunavut will provide educational materials and professional development training in all official languages to full-time licensed daycares across the territory.

Table 14: Overview of initiative to deliver quality ELCC resources to official languages minority children (French, Inuinnaqtun, Inuktitut)
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
ELCC educational materials in all official languages and professional development for all licensed child care facilities Continue to distribute education materials in all official languages and provide ELCC professional development Continue to distribute education materials in all official languages and provide ELCC professional development $0 $0
Mechanism 3.6: Foster a strong working and collaborative relationship with Nunavut Tunngavik Incorporated
Description

Foster a strong collaborative relationship with NTI, by actively participating in open and transparent communications, and intentionally working together for a common cause.

Discussion

Under the Nunavut Agreement, the Government of Nunavut is obligated to provide Inuit with meaningful opportunities to participate in the development of social and cultural policies, and in the design of social and cultural programs and services, including their method of delivery in Nunavut, and endeavor to reflect on Inuit goals and objectives where it puts in place such social and cultural polices, programs and services. The ELCC division is committed to working together with NTI and fostering a strong collaborative relationship with NTI in principle and in practice.

The ELCC division is an active participant in Nunavut Tunngavik Incorporated’s ELCC Inunnguinirmut working group, which includes representation from NTI and the RIAs. The department is committed to continue to work openly and transparently with these representative Inuit organizations, and other relevant Indigenous partners, to ensure that all children in the territory have access to Inuit-specific Indigenous early learning child care.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, we will have continued to foster a collaborative and effective relationship between the GN and NTI.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

By fiscal year 2025 to 2026, the Government of Nunavut will have an action plan that will guide the development and actions to enhance early learning and child care in collaboration with NTI, and will inform and report to the Government of Canada on the outcomes of the consultations and work with NTI on child care initiatives.

Table 15: Overview of initiative to foster a strong working and collaborative relationship with Nunavut Tunngavik Incorporated
Indicators Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
NTI participation in the ELCC Action Plan Implementation Committee Engage with NTI on all Inuit-specific Indigenous Early Learning Child Care (IIELCC) initiatives Work collaboratively with NTI to approve and implement the Strategic Action Plan for ELCC Inclusion and Equity $0 $10,000.00

4. Support quality

Mechanism 4.1: Nunavut ELCC Quality Framework
Description

A Nunavut ELCC Quality Framework will develop the fundamental defining features of Inuit-centred early learning, for infants and children, as well as for parents and caregivers. This evidence-based document will articulate the unique nature of Inuit childrearing in Nunavut. It will be used as a foundational framework for all future decisions about the development of ELCC in Nunavut, including standards, policies, education and professional development, tools, activities, programs, relationships, and facilities.

Discussion

The Department of Education is committed to the development of a Nunavut Early Learning and Child Care Quality Framework that will inform and guide future policy and program deliveries. The framework will be grounded in Inuit culture and language and reflective of Inuit Qaujimajatugangit vision and principles. The framework will describe and outline the uniqueness of the whole child growing up in Nunavut.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, Nunavut's first ELCC Quality Framework will be adopted, and a strategic action plan will be developed to implement the framework.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

By fiscal year 2025 to 2026, the Government of Nunavut will have created its first ELCC Quality Framework as well as an action plan focusing on the advancement of ELCC across the territory.

Table 16: Overview of initiative to develop a Nunavut ELCC Quality Framework
Indicator Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Completion of Nunavut’s first ELCC Framework Initiate ELCC Quality Framework Complete the Nunavut ELCC Quality Framework $100,000.00 $50,000.00
Mechanism 4.2: ELCC wage grid
Description

Developing a wage grid will address existing wage disparities and support the successful growth of child care positions in regulated facilities. It will also improve wage fairness (in addition to respect, dignity, and equity) and be an incentive for increased ELCC certification and professionalism. It is anticipated that having a transparent wage grid for ELCC will improve recruitment and retention, and reinforce ELCC career trajectories and opportunities in Nunavut. A wage grid and scale will be supportive of increased training and professional development, and done in parallel with further training and professional development certification.

Discussion

Streamlining the range of ELCC wages in Nunavut is essential to the development and sustainability of the daycare sector. Currently the range of ELCC wages is very broad, resulting in significant competition between daycares to retain staff. Addressing wage disparities by introducing one wage grid effective for all of Nunavut will stabilize the daycare workforce, reduce competition between daycares, improve wage fairness, and incentivize increased ELCC professionalism and certification.

Therefore, it is strategic for the Department of Education to develop a wage grid for ELCCs, and support to child care centres to attract and retain Nunavut’s valued ELCC educators. This can help to ensure that staff working within the centres are offered a more competitive wage and have greater access to training and professional development opportunities. The Government of Nunavut commits to developing and implementing a wage grid that reflects the education, training, and years of work experience for ELCC educators at every level.

The Department of Education will conduct an early childhood educator labour force adjustment analysis that is specific to the compensation of ELCC educators in licensed child care centres in the territory. The department will develop compensation standards for entry and ongoing wages, as well as benefits for professional responsibilities, including a minimum wage grid/pay scale for all levels (determined through the scope of practice, education requirements, standards and competencies), and will use living wage or self-sufficiency standards in the territory as a minimum.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, a wage grid will be created for Nunavut's ELCC workers to support fair and transparent wages, and to incentivize certification and advanced education. This will result in improved delivery of quality, accessible, and inclusive child care.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

By fiscal year 2025 to 2026 a wage grid for all licensed child care facilities will have been adopted to ensure that Nunavut’s ELCC workers are supported by a fair wage scale based on ELCC certification.

Table 17: Overview of initiative to develop an ELCC wage grid
Indicator Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Development of Nunavut’s first Early Childhood labour force wage grid and implementation plan for all licensed child care centres Initiate analysis of current wage scales of ELCC educators in Nunavut and Canada
  • Complete analysis of wage scales
  • Develop a plan for introducing the wage scale starting in fiscal year 2023 to 2024
  • Initiate a MEL framework for wage scale data
  • Prepare a communication plan for implementation of new Nunavut ELCC wage grid in fiscal year 2023 to 2024
 $25,000.00 $230,000.00
Mechanism 4.3: ELCC workforce recruitment and retention
Description

Stabilizing the workforce of ELCC staff will directly improve the growth of quality, accessible, and inclusive early child care in Nunavut. With a small population and a limited number of currently-certified practitioners across Nunavut, efforts to increase recruitment and bolster retention is essential. Inuit-focused employment and professional development is at the forefront of this initiative.

Discussion

The department recognizes ELCC staffing as a significant barrier to keeping child care centres open. ELCC educators are among the lowest paid positions in the territory and with high costs of living, educators cannot afford employment within the child care sector. Many who start work in child care centres move on quickly to higher-paying jobs with fewer physical, emotional, and mental demands. Currently many child care centres are closing their doors daily or reducing the number of children in their care due to lack of educators. To address this, the Department of Education will ensure that training and professional development opportunities are accessible to all ELCC centre staff, and that such opportunities are flexible and allow for the greatest staff participation.

Acknowledging the valuable roles played by early childhood educators ultimately benefits children attending ELCC programs, as they stand to receive programming from more satisfied, confident, and engaged educators. As educator retention improves, children will benefit from greater continuity and consistency in programming.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, the ELCC labour retention of the 283 current positions in Nunavut will have stabilized, due to recruitment and retention fund initiatives delivered directly to licensed or regulated daycares. As a result, there will be an immediate recruitment of a minimum of new 5 daycare workers in home daycares earning competitive wages.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

The Government of Nunavut will have required all licensed child care centres to adopt a wage scale that provides fair and equitable wages with a focus on ELCC-certified child care staff.

Table 18: Overview of initiative on ELCC workforce recruitment and retention
Indicator Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Continued stabilization of the ELCC workforce
  • Promote the federal wage enhancement funding program
  • Provide wage enhancement funding to support the retention of 283 current ELCC workforce positions, in 38 full-time and 22 part-time licensed/ regulated child care centres for pre-school age children
  • Promote the federal wage enhancement funding program within the territory alongside a general campaign for ELCC workers for local daycares
  • Maintain wage enhancement funding to support the retention of 283 current ELCC workforce positions, in 38 full-time and 22 part-time regulated/ licensed child care centres for pre-school age children
  • Undertake a study to determine accreditation programs (and advanced specializations) in Canada (with course equivalencies to NAC)
 $1,305,000.00 $2,610,000.00
Mechanism 4.4: ELCC certification growth
Description

Providing professional development for Inuit ELCC practitioners will be essential for the growth of quality, inclusive, and accessible child care in Nunavut. Building the workforce is fundamental to the expansion of child care spaces in Nunavut. Creating certification opportunities for further advanced learning will improve accessibility and inclusivity. With the Canada-Nunavut Bilateral Agreement currently in place, the Government of Nunavut will continue to provide regional and community-based training to support the development of ELCC staff across Nunavut. There is currently no certification requirement or legislated requirement for ELCC staff in Nunavut.

Under the existing Canada-Nunavut Bilateral Agreement, first aid training and regional training is currently provided in-house by ELCC division staff. However, the training under the ELCC Agreement will not be delivered in-house, as certification and accreditation is beyond the responsibility of the ELCC division. Therefore, the ELCC division will be working to establish appropriate, available, and affordable options for ELCC advanced training according to established standards. As part of this initiative, there will be increased advanced training and certification options for Nunavut Inuit.

In the context of Nunavut, enhanced training involves specializations that include, but are not limited to: specific Inuit culture and language child care; trauma-informed child care focused on the context of foster children; equity in child care for racialized children; inclusion for children living with disabilities; and children needing enhanced or individual supports.

Towards ELCC certification growth, in the first 2 years of this agreement, the Government of Nunavut will assess, collect data, analyze, and select certification options for Nunavut’s ELCC current and expanding workforce. The GN will include the outcomes of this work in the year 3 to 5 action plan, and further outline the steps.

Discussion

The Department of Education will ensure that existing training and professional development opportunities are accessible to all ELCC centre staff, and that such opportunities are flexible and allow for the greatest staff participation. Currently the Government of Nunavut’s Child Day Care Act does not include certification requirements, and the Act requires significant updates. The current Nunavut Child Day Care Act still operates from the 1998 Consolidation of the Child Care Day Act of the Northwest Territories.

There are significant challenges related to training, recruitment, and retention of qualified ELCC staff across Nunavut. Very few ELCC educators have any type of formal ELCC training. Many centres hire staff who are willing to work for low wages, but due to a lack of training and non-competitive wages, many of these workers choose to leave the field within a short time. This creates a revolving door of ELCC educators in Nunavut, which restricts the ability of the centres to remain open to full capacity and provide high-quality child care. As a first step in addressing these challenges, the Department of Education needs to gain a better understanding of the ELCC educator landscape across the territory.

The Government of Nunavut will begin to work cooperatively with Nunavut Arctic College (NAC) to advance training and professional development opportunities. To leverage all options, the Government of Nunavut will also undertake a study to determine accreditation programs and advanced specializations available elsewhere in Canada. Following these conversations and studies in this initial action plan, the year 3 to 5 action plan will include results and a plan forward.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, there will be a deeper understanding of, including data for, the number of ELCC workers with credentials (and those ELCC workers missing some credential courses). The GN will have established some practical methods to further increase the number of ELCC certified educators in Nunavut. The GN will have made a plan to increase the number of ELCC certification courses delivered by accredited institutions for learners in local communities and/or online. A pilot program for delivering advanced ELCC professional development will be implemented, specifically focusing on improved delivery of accessible and inclusive Inuit child care services.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

By fiscal year 2025 to 2026, the Government of Nunavut will have expanded its support for ELCC training across the territory and introduced an annual spending allocation for ELCC worker training and professional development. The GN will also have initiated the implementation and delivery of the pilot project. More detail about the pilot project will be provided in the year 3 to 5 action plan. The plan is to provide options, then to push forward with investments. The Government of Nunavut will show increased investment in training and development for Nunavut’s expanding ELCC workforce.

Table 19: Overview of initiative on ELCC certification growth
Indicator Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Creation of a plan to offer different types of training supports to enhance the number of ELCC-certified members within the ELCC workforce
  • Initiate a data review of past and current NAC student credentials
  • Initiate conversations with NAC to consider plans to expand ELCC certification program delivery across Nunavut
  • Complete analysis of NAC student data to determine credential coursework gaps and make a plan to fill course gaps for past students to graduate
  • Undertake a study to determine accreditation programs and advanced specializations in Canada, to expand the educational offerings available to Nunavummiut
  • Develop a plan to pilot advanced ELCC professional development in year 3
 $20,000.00 $230,000.00
Mechanism 4.5: ELCC sector development and transformation
Description

Strengthening and expanding the ELCC sector involves assisting unlicensed ELCC providers to become licensed and to support licensed regulated daycares to improve their compliance with regulations. Sector development also involves supporting ELCC organizations’ capacity, development, and governance.

Discussion

Strengthening the ELCC sector is a keystone to Nunavut’s future success in developing and transforming ELCC across the territory. It is necessary to support ELCC organizations’ capacity, development, and governance to stabilize the daycare sector overall, and to provide for sector expansion and growth.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, the governance and operations of the ELCC sector will have been strengthened by licensing an increased number of ELCC service providers, and by providing significant additional organizational and development support to all regulated child care centres.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

By fiscal year 2025 to 2026, the Government of Nunavut will have created an action plan committing to the advancement of ELCC across the territory in collaboration with NTI. The Government of Nunavut will be increasing spending on professional development.

Table 20: Overview of initiative on ELCC sector development and transformation
Indicator Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment fiscal year 2021 to 2022 Investment fiscal year 2022 to 2023
The creation of a sector development and transformation plan
  • Develop a plan for assisting the unlicensed sector and foster family home daycares to become licensed and regulated
  • Initiate a review and assessment of all available professional development and funding opportunities
  • Initiate the development of a strategic plan for ongoing organizational development and support for the ELCC sector
  • Deliver a plan for assisting the unlicensed sector and foster family home daycares to become licensed and regulated
  • Complete and adopt a plan for ELCC organizational support, with NTI’s support
  • Develop an action plan for sector development of ELCC services, with NTI’s support
 $10,000.00 $170,000.00

5. Support administration and reporting

Mechanism 5.1: Create term positions to build capacity within the government of Nunavut
Description

Build targeted capacity within the Government of Nunavut to increase child care space creation, to improve access to child care.

Discussion

Creating new daycare spaces will significantly increase the workload of the Department of Education’s ELCC division and will require the growth of sufficient capacity to accomplish these tasks. The Department of Education will create term positions for the duration of this agreement to support this work. These employees will be responsible for project management, manage consultants, and undertake relationship-building and capacity-building work across Nunavut to support a growing and robust daycare sector.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, we will have increased the capacity for the GN to accomplish work in this agreement, through hiring dedicated term positions.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

By fiscal year 2025 to 2026, the Government of Nunavut will have expanded its ELCC division within the Department of Education to support the growth of ELCC across Nunavut.

Table 21: Overview of initiative to create term positions to build capacity within the Government of Nunavut
Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Hire term positions to increase child care spaces across Nunavut Hire term positions to increase child care spaces across Nunavut $30,000.00 $802,000.00
Mechanism 5.2: Hire consultants to satisfy temporary capacity needs for the ELCC agreement
Description

Hire consultants to undertake distinct tasks to accomplish this action plan.

Discussion

The Department of Education’s ELCC division does not have the internal capacity to undertake the volume of work required to accomplish this action plan. Furthermore, many of the actions listed in this plan are distinct and temporary in nature. Therefore, it is prudent for the Department of Education to hire consultants to accomplish tasks in this phase 1 action plan of the ELCC Agreement. Accountability for these funds will be the responsibility of the Department of Education, with support from the Implementation Committee.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, we will have increased the capacity for the GN to accomplish work in this agreement, through hiring dedicated term positions.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Table 22: Overview of initiative to hire consultants to satisfy temporary capacity needs for the ELCC agreement
Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023
Hire consultants to complete distinct tasks in the action plan Hire consultants to complete distinct tasks in the action plan $602,500.00 $802,000.00
Mechanism 5.3: Reporting and monitoring, evaluation, and learning
Description

Reporting is a significant requirement of the ELCC Agreement. To satisfy the reporting requirements, the GN will require a Monitoring, Evaluation, and Learning framework, implementation plan, and reporting tools. As well, the GN will also require significant new reporting infrastructure (databases and equipment), and must build reporting capacity within the ELCC division.

Discussion

Collecting advanced data on ELCC is new to the Government of Nunavut. The Government of Nunavut will be working closely with the Implementation Committee to determine data reporting details and timelines.

The Canada-Nunavut Bilateral Agreement provides funding for the initial development of a basic information technology (IT) database system. It is evident that this basic system will now require advanced functions to be able to appropriately account for the significant reporting requirements of this agreement. This specialized and advanced IT database preparation and management work will use funding through this agreement. For greater clarity, this additional investment will complement and deepen the funding provided in the Bilateral Agreement and will allow the Government of Nunavut to comply with the requirements of the annual census as stipulated in the ELCC Agreement.

As per this agreement, the Department of Education will be required to undertake an annual census of ELCC service providers and other participants in the sector. Data gathered through the census will include, but is not limited to:

Creating a robust MEL framework and database system will allow the ELCC division to gather detailed information for reporting at large and micro levels, to be rolled together to show a full picture of ELCC across the territory.

Currently, licensed child care facilities do not have the capacity to deliver additional data to funders because their operations are already stretched thin. This is why it is important to build a mechanism to collect and manage data, making it easy and straightforward for daycares to share the required census data with the Department of Education for analysis and reporting back to the Government of Canada. Building a database and data collection systems is therefore imperative.

The first 2 years will require preparatory work to support the collection of census data. Census data collection and reporting will be part of the next Action Plan and will be included within the Implementation Committee responsibilities. The census data will begin in fiscal year 2022 to 2023, with a target of reporting on December 2022 a 50% reduction in parental fees.

Targets

Fiscal year 2021 to 2022

Fiscal year 2022 to 2023

Cumulative target

By March 2023, we will have prepared for reporting and information sharing to monitor and evaluate the work in this agreement and meet the Government of Canada reporting requirements.

In fiscal year 2021 to 2022 to fiscal year 2022 to 2023, by following this action plan we will have:

Five-year target

By fiscal year 2025 to 2026 the Government of Nunavut will have created a robust mechanism of data collection in collaboration with the Government Canada and NTI to have a better understanding of the ELCC sector.

Table 23: Overview of initiative on reporting and monitoring, evaluation, and learning
Targets by fiscal year 2021 to 2022 Targets by fiscal year 2022 to 2023 Investment for fiscal year 2021 to 2022 Investment
fiscal year 2022 to 2023
  • Initiate a Monitoring, Evaluation, and Learning Framework
  • Initiate the acquisition of an advanced reporting database
  • Complete a MEL framework, implementation plan, and reporting tools
  • Acquire reporting infrastructure
 $822,405.20 $300,000.00

Summary table

Note: The tables below were modified for accessibility purposes.

Table 24: Targeted Canada-wide ELCC initiatives for fiscal year 2021 to 2022 and fiscal year 2022 to 2023
Initiative Investment for fiscal year 2021 to 2022 Investment for fiscal year 2022 to 2023 Total investment
Affordability $4,280,000.00 $4,280,000.00 $8,560,000.00
Access $105,000.00 $588,428.20 $693,428.20
Inclusivity $20,000.00 $110,000.00 $130,000.00
Quality $1,460,000.00 $3,290,000.00 $4,750,000.00
Reporting $1,454,905.20 $1,904,000.00 $3,358,905.20
Administrative costs $813,322.80 $1,130,269.80 $1,943,592.60
Total investments $8,133,228.00 $11,302,698.00 $19,435,926.00

With the administrative funding the Government of Nunavut will be building internal capacity and will account for applicable operations and maintenance costs (that is, office space, office equipment, travel).

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