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Canada ‒ Manitoba Canada-Wide Early Learning and Child Care Agreement - 2021 to 2026

Official title: Canada ‒ Manitoba Canada-Wide Early Learning and Child Care Agreement

Note: The Canada-Manitoba Canada-wide Early Learning and Child Care Agreement (fiscal year 2021 to 2022 to fiscal year 2025 to 2026) has been amended – Amendment 1.

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

Between:

Referred to collectively as the “Parties”.

Preamble

Whereas, Canada and Manitoba 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 Manitoba 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 (FES), 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 $9.2billion 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 Legislation in fall 2021, following consultations with stakeholders, provincial, territorial, and Indigenous partners—to enshrine the principles of a Canada-wide Early Learning and Child Care (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 Community Child Care Standards Act and The Executive Government Organization Act authorizes the Manitoba Minister to enter in agreements with the Government of Canada under which Canada undertakes to provide funding toward costs incurred by the Government of Manitoba 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.

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

Now therefore, Canada and Manitoba agree as follows.

1.0 Vision for Canada-wide early learning and child care

1.1 Canada will be guided by the long-term vision and objectives set out in the Multilateral Framework in making investments in early learning and child care committed in Budget 2021 across jurisdictions. Canada and Manitoba 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 Manitoba aspire to the following objectives:

1.3 Canada and Manitoba 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 7.

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

2.1.1 Canada and Manitoba commit to the following objectives:

2.1.2 Manitoba’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 Manitoba 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 and home-based child care) early learning and child care programs and services, for children under the age of 7, where:

2.2.2 In developing and delivering its ELCC programs and services, Manitoba 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 Manitoba to support the growth and expansion of the child care system, and the implementation and administration of this Agreement.

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

2.2.5 Canada and Manitoba agree that funding will be targeted toward regulated programs and activities, as described above, for children under age 7, that will have an impact on families, including families more in need such as lower-income families, Indigenous families, lone-parent families, and families in underserved communities, including Black and racialized families; families of children with disabilities and children needing enhanced or individual supports; and families with caregivers who are working non-standard hours. 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 Manitoba 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 Manitoba 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, Manitoba may continue to use funding provided to cover the same eligible areas of investment as those covered through funding received for the period 2021 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 Manitoba through the Canada Social Transfer in order to support early childhood development and ELCC within Manitoba.

4.2 Allocation to Manitoba

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 2021 to 2026 Canada-wide Early Learning and Child Care Agreements:

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

Table 1: Manitoba’s estimated projected share of financial provisions by fiscal year
Fiscal year Estimated amount to be paid to Manitoba* (subject to annual adjustment)
2021 to 2022 $129,314,235
2022 to 2023 $197,356,654
2023 to 2024 $244,395,815
2024 to 2025 $287,259,304
2025 to 2026 $342,349,858

*The notional allocations for fiscal year 2021 to 2022 use Statistics Canada’s population estimates as at July 1st, 2020. Notional allocations for fiscal year 2022 to 2023 through fiscal year 2025 to 2026 are calculated based on Statistics Canada’s longer-term population growth models using the Medium Growth M1 Population Growth Scenario from the previous fiscal year. 

4.2.3 The final amount to be paid to Manitoba 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 Manitoba 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 Manitoba 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 Manitoba 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 Manitoba 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 Manitoba 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 Manitoba 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 Manitoba 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 Manitoba 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 Manitoba is subject to an annual appropriation by Manitoba’s Legislature.

4.5 Maximum annual contribution in respect of administration costs

4.5.1 Canada’s contribution in respect of Manitoba’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 Manitoba and subject to approval of Canada’s Treasury Board, Manitoba may retain and carry forward to the following fiscal year any unexpended funds remaining from Manitoba’s annual contribution payable under section 4.2., up to a maximum of 55% of the contribution payable. Any unexpended funds in excess of 55% 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 Manitoba, and subject to approval of Canada’s Treasury Board, Manitoba may retain and carry forward to the following fiscal year any unexpended funds remaining from Manitoba’s annual contribution payable under section 4.2., up to a maximum of 15% of the contribution payable. Any unexpended funds in excess of 15% 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 Manitoba, and subject to approval of Canada’s Treasury Board, Manitoba may retain and carry forward to the following fiscal year any unexpended funds remaining from Manitoba’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 Manitoba 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 section 4.6.1 through 4.6.3 is supplementary to the maximum amount payable to Manitoba 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 through 4.6.3 must be spent by the end of that fiscal year. Manitoba 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. 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 Manitoba exceed the amount to which Manitoba 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 Manitoba under this Agreement.

4.8 Use of funds

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

4.8.2 Canada and Manitoba agree that, within each fiscal year of the period of this Agreement, Manitoba may move funding between the individual programming categories outlined in its Action Plan in Annex 2 to ensure the maximum use of funding. Manitoba 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 Manitoba.

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

5.0 Accountability

5.1 Action plan

5.1.1 Manitoba has completed and shared its Action Plan for fiscal year 2021 to 2022 and fiscal year 2022 to 2023 (Annex 2). Subsequently, Manitoba will provide an Action Plan for fiscal year 2023 to 2024 through fiscal year 2025 to 2026 by the beginning of fiscal year 2023 to 2024. Manitoba 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 the following indicators below. The following indicators should be used where data is available; for the indicators that Manitoba is unable to report, it should indicate in its Action Plan in Annex 2 how it plans to investigate the production of these indicators over the course of the agreement:
    1. 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/not-for-profit/public regulated child care centres, regulated family child care homes, etc.)
    2. 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/not-for-profit/public regulated child care centres, regulated family child care homes, etc.)
    3. total number of inclusive (as defined in section 2.1.1) spaces created/converted, broken down by age group of child and type of setting
    4. 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
    5. number of children under age 6 and 6 to 12 years receiving fee subsidies, broken down by families receiving partial and full subsidies
    6. number and proportion of children under age 6 and 6 to 12 years in flexible regulated ELCC arrangements and number and proportion of centers/providers that provide flexible arrangements (that is non-traditional arrangements such as flexible/irregular hours, weekend and emergency services; and geographic distribution of spaces)
    7. 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
    8. 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
    9. number of Indigenous children under age 6 years in regulated ELCC spaces, distinction-based (First Nations, Inuit, Metis) where possible  
    10. number of racialized children, including Black children under age 6 in regulated ELCC spaces
    11. number and percentage of staff working in regulated child care programs in Manitoba who fully meet the Manitoba’s certification/educational requirements
    12. annual public expenditure on training and professional development of the early childhood workforce
    13. 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 Manitoba plans to address the ELCC needs of its children/families more in need, as described in section 2.2.5:
    1. 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:
    1. information about waiting lists to access regulated ELCC spaces
    2. total child care subsidies provided by parents’ income level
    3. average child-to-staff ratio among licensed child care service providers
    4. 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 Manitoba 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 future Action Plan. Manitoba will outline the results of consultations in its future Action Plan as well as through its annual reporting.

5.1.3 By the beginning of fiscal year 2023 to 2024, Manitoba commits to share with Canada its fiscal year 2023 to 2024 through fiscal year 2025 to 2026 action plan. The action plan shall include the elements described in section 5.1.1 a) to f). Once the Parties agree that the annual action plan is final, the action plan may be published by one or both of the Parties and Canada will be able to provide Manitoba 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, Manitoba 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, Manitoba agrees to:

  1. provide to Canada an Annual Report in the format and manner decided jointly by Canada and Manitoba. The report shall show separately the results attributable to the funding provided by Canada under this Agreement and shall include:
    1. description of the activities, expenditures and results of the Agreement as set out in Annex 2
    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 per day by fiscal year 2025 to 2026
    3. results achieved according to the indicators and targets referred to in Annex 2
    4. the impact on families more in need, as described in section 2.2.5, including progress toward specific Manitoba targets as described in Annex 2, such as the numbers of inclusive spaces supported by federal funding and by category. For the elements that Manitoba is unable to report, it should indicate in its Action Plan in Annex 2 how it plans to investigate the production of these elements over the course of the agreement
    5. additional available information to be reported annually that would be useful to assess progress
    6. description of any relevant consultation processes, the type of groups consulted and annual priorities related to stakeholder feedback referred to in Annex 2
    7. 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 available 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 the fiscal year:
    1. the revenue section of the statement shall show the amount received from Canada under this Agreement during the fiscal year, indicating:
    2. the total amount of funding used for ELCC programs and services under section 2.2
    3. the administration costs incurred by Manitoba in developing and administering ELCC programs under section 2.2.3
    4. if applicable, the amount of any amount carried forward by Manitoba under section 4.6
    5. 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 Manitoba Auditor General or his/her delegate, or by an independent public accounting firm registered under the laws of Manitoba 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 Manitoba 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, Manitoba agrees to report to the people of Manitoba 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 Manitoba Action Plan, Manitoba agrees to undertake, and share results with Canada from, an annual census of child care providers and other participants in the sector in Manitoba to collect demographic, statistical and other non-identifying information, including: number of children enrolled, capacity (number of spaces), number of Early Childhood Educators (ECEs), ECE wages and qualifications, fee charged to parents, subsidies, and number of First Nations, Inuit or Metis child care spaces supported. Any costs to Manitoba for 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 Manitoba, 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 Manitoba will ensure that expenditure information presented in the annual report is, in accordance with Manitoba’s standard accounting practices, complete and accurate.

5.4 Evaluation

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

5.4.2 Manitoba may be asked to participate in the evaluation by Canada of the initiatives under this Agreement and agrees to provide information, where available, 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 Manitoba will create an officials-level Implementation Committee that will monitor progress towards this goal in consultation with stakeholders. Manitoba will share available data to support the work of the Implementation Committee.

6.2 Canada and Manitoba, 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:

  1. administration and management of the Agreement, including providing a forum for the exchange of information on annual planning priorities and reporting
  2. exchanging information on local challenges and priorities and the results of engagement with relevant stakeholders, including official language minority communities
  3. providing a forum to exchange information on best practices and have discussions related to the implementation of the Agreement, for example, status of data collection, results, expenditures
  4. improving data collection and dissemination on key ELCC information, including culturally oriented ELCC information for Indigenous children, Black and other racialized children, newcomer children, and other groups of children that may require additional consideration for accessing programs and services
  5. review and provide direction to resolve any issues arising from the implementation and management of this Agreement, and from the evaluation of provincial programs supported under this Agreement
  6. monitor progress towards the shared goal of $10 per day child care, in consultation with stakeholders
  7. in December 2022, report to the Governments of Canada and Manitoba on progress towards Canada and Manitoba’s shared goals to date and for the remaining term of the Agreement

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

7.3 Manitoba 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 Manitoba 10 days advance notice of public communications related to the Framework, bilateral agreements, and results of the investments of this Agreement.

7.5 Manitoba reserves the right to conduct public communications, announcements, events, outreach and promotional activities about the Framework and bilateral agreements. Manitoba 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 Manitoba agree to participate in a joint announcement upon signing of this Agreement.

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

7.8 Manitoba 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 Manitoba 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 Manitoba for use in notifying all recipients of funding from this Agreement, to include federal and Manitoba 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 Manitoba 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 Manitoba 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 Manitoba, as the case may be, may notify the other party in writing of the failure or breach. Upon such notice, Canada and Manitoba 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 Manitoba Minister shall endeavour to resolve the dispute.

8.4 If either party has failed to comply with its obligations or undertakings and where Manitoba 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 Manitoba by giving at least 6 months written notice of Canada’s intention to terminate the Agreement. Manitoba may terminate this Agreement at any time if the terms of this Agreement are not respected by Canada by giving at least 6 months written notice of Manitoba’s intention to terminate the 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 Manitoba 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:

Social Policy Directorate
140 Promenade du Portage
Gatineau QC  K1A 0J9
NC-SSP-ELCC-GD@hrsdc-rhdcc.gc.ca

The address for notice or communication to Manitoba shall be:

205 – 114 Garry Street
Winnipeg MB  R3C 4V4

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 Manitoba.

12.4 No member of the House of Commons or of the Senate of Canada or of the Legislature of Manitoba 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 in Ottawa this 9th day of August, 2021.

[Signed by] The Honourable Ahmed Hussen, Minister of Families, Children and Social Development.

Signed on behalf of Manitoba by the Minister of Families at 1:45 pm this 6th day of August, 2021.

[Signed by] The Honourable Rochelle Squires, Minister of Families.


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: Manitoba’s fiscal year 2021 to 2022 through fiscal year 2022 to 2023 Canada-wide action plan

Introduction: Manitoba’s existing early learning and child care system

Manitoba is committed to ensuring that families have increased access to a responsive, integrated and culturally receptive early learning and child care (ELCC) system for children from infancy to school entry. The ELCC Program within the Department of Families holds the legislated authority under The Community Child Care Standards Act and Regulations to ensure operational compliance of all regulated child care programs in Manitoba in the provision of safe, accessible, affordable and high quality child care services. This includes:

Manitoba’s ELCC provincial spending

In fiscal year 2019 to 2020 total, provincial expenditures to support the ELCC regulated sector totaled $198.9 million with $195.1 million being directed to financial assistance and grants. This represents a 22% increase in provincial funding from fiscal year 2015 to 2016 when total expenditures were $162.7 million.

Table 2: ELCC program budget
Expenditures by sub-appropriation/actual expenditures Fiscal year 2015 to 2016 Fiscal year 2016 to 2017 Fiscal year 2017 to 2018 Fiscal year 2018 to 2019 Fiscal year 2019 to 2020
Salaries and employee benefits 4,617,000 4,896,000 4,855,000 4,571,000 3,432,000
Other expenditures 1,111,000 864,000 1,806,000 264,000 378,000
Financial assistance and grants 157,006,000 166,354,000 176,294,000 169,972,000 195,076,000
Total expenditures 162,734,000 172,114,000 182,955,000 174,807,000 198,886,000

Manitoba’s child care options and support for families

Early learning and child care in Manitoba is delivered in not-for-profit and for-profit child care centres, and home-based child care facilities to provide child care options for children 0 to 12 years of age. In fiscal year 2019 to 2020, there were 729 licensed child care centres including 162 nursery school programs (targeted towards 0 to 6 years old), along with 443 licensed home-based facilities offering a total space capacity of 38,465 spaces of which 25,489 are spaces for preschool children aged 0 to 6 years. This provides a child care space for 26.8% of the total preschool children in the province. Not-for-profit centres offer 95% of the spaces in licensed child care centres. The for-profit sector only represents 5% of centres and spaces offered through regulated centre based child care. Although a small component of Manitoba’s larger system, for-profit operators are often family businesses committed to meeting community needs and not part of larger corporations.

Low-income families are supported in accessing child care through the child care parent fee subsidy program. In fiscal year 2019 to 2020, an average of 6,452 children received a child care fee subsidy in a 4-week billing period. As subsidy levels were last indexed by 5.3% in 2012, eligibility has been declining as net incomes above $16,420 result in partial subsidy support. Ensuring low and middle income Manitoban’s have access to child care to advance their ability to participate and maintain employment is critical, particularly as we continue moving through the pandemic experience.

For the past several years, Manitoba has been working to strengthen the regulated child care system across the province, focusing on concrete ways of providing quality, affordable, and accessible options for families particularly in higher need communities, while supporting and developing early childhood educators. The initiatives under Manitoba’s Action Plan in the fiscal year 2017 to 2018 through fiscal year 2019 to 2020 bilateral agreement with Canada and the fiscal year 2020 to 2021 extension agreement reflect these continued priorities. The funding allocation under the Canada-Wide Early Learning and Child Care Agreement is an opportunity to expand on this important work and to continue to move forward with strengthening the province’s regulated child care system through lessons learned.

In 2019, the Manitoba Government launched an in-depth review of the provincial child care system and although it provided valuable insights from an external perspective, it denoted only one viewpoint for improvement towards a modernized system. It is recognized that there are a range of key stakeholders, including parents, child care providers, communities and employers who have important feedback to provide based on their first-hand experiences. With this, two key consultation mechanisms are now in place to provide direct information and feedback to the Minister of Families; the Child Care Parent Advisory Committee and an expanded Minister’s Consultation Table, with a new sub-committee focused on the regulated sector, and federal allocations. The Table was initiated under the fiscal year 2017 to 2018 through fiscal year 2019 to 2020 bilateral agreement with the intent of being the primary mechanism to regularly consult with a range of stakeholders from across the province’s child care sector.

The child care review has led to a commitment by the Province to work towards transforming the provincial ELCC system over the next 3 years with the added focus of supporting Manitoba’s re-opening during the remainder of the COVID-19 pandemic and post-pandemic. A robust child care system is key in the province’s and families’ recovery. The full impact of the pandemic on the regulated child care sector remains unknown. A number of facilities choose to remain closed and it is anticipated some may never re-open. At the end of May 2021, 1,166 facilities were licensed to operate, however 1,129 were open to provide child care services; 604 centres, 431 homes and 94 nursery schools with a total space capacity of 35,395 spaces. Of these, 4,342 (12.3%) were vacant. This is not typical in Manitoba where families and child care providers have consistently expressed concerns about facility waitlists and the length of time experienced in securing a space for enrolment. New trends have been set through this experience with many office-based businesses establishing work from home or remote work locations for their employees. This resulted in greater demand from parents employed in critical and essential service areas that do not work regular business hours. This has exposed a significant gap in the Manitoba system to support families working irregular or extended hours, part-time and shift work.

The ELCC transformation project currently underway in the Department of Families is focused on strengthening and building on existing services to better support Manitoba parents to be employed, return to work or undertake training. This 3-year transformation plan includes 6 key pillars that align with the principles in the ELCC Multilateral Framework and Canada-wide Agreement, and will measure the strategic, targeted outcomes of this priority work:

  1. accessibility: improved responsiveness of the early learning and child care system (that is, greater flexibility in operational hours, wider array of child care choices) resulting in increased access to quality services and improved accountability of the system
  2. affordability: balanced affordability of child care fees with financial assistance for providers through a modernized, equitable funding approach
  3. quality and inclusivity: improved quality of services through creative recruitment and retention initiatives and a certification process that supports career laddering, and improved adaptable curriculum framework to integrated Indigenous, cultural and community perspectives
  4. sustainability: greater, longer-term sustainability of the early learning and child care sector through targeted funding supports, training, and shared service initiatives
  5. reporting: IT business solutions that better support internal functions, child care providers and parents
  6. a new legislative framework (anchoring the other 5 pillars)

Manitoba’s approach to a Canada-wide system

Manitoba and Canada share a common set of principles as set out in the ELCC Multilateral Framework and a vision that all families have access to high‐quality, affordable, flexible and inclusive ELCC services. Manitoba is committed to a 50% average parent fee reduction by the end of the 2022 calendar year and the shared goal of achieving an average $10 per day out-of-pocket parent fee for preschool children, particularly for lower and middle income households and accomplishing this by the end of the 2022 to 2023 fiscal year.

To achieve this goal, Manitoba will be implementing a new parent fee and subsidy ELCC model as well as fee adjustments across household incomes in order to achieve an average out-of-pocket $10 per day fee for preschool children. The adjusted lower out-of-pocket parent fees will be implemented through a new income-based approach based on gross income levels and the difference in the parent fee portion paid on behalf of parents directly to facilities.

The fiscal year 2021 to 2022 to fiscal year 2025 to 2026 Canada‐wide ELCC (CW-ELCC) Agreement and Action Plan describes investments for the first 2 years of the Agreement. The Agreement invests $129.31M in fiscal year 2021 to 2022 and $197.35M in fiscal year 2022 to 2023 towards establishing an accessible, affordable, and flexible Canada‐wide child care system with average $10 per day out-of-pocket parent fees, while at the same time improving quality and inclusivity. The funding allocations under the Agreement will prioritize investments in Manitoba towards regulated child providers and services for preschool children 0 to 6 years old. Investments will be directed towards:

With both levels of government committed to working towards a more responsive, affordable, inclusive and high-quality system where child care is available to all families that need it, Manitoba and Canada will create an officials‐level implementation committee to monitor progress and re-evaluate established targets throughout the 5-year term of the Agreement. This will ensure goals based on a common vision and related targets actually support the Manitoba landscape of family and community needs. In December 2022, this Committee will report to the Governments of Canada and Manitoba on progress towards meeting Canada and Manitoba’s shared goals to date and for the remaining term of the Agreement. The Committee will jointly review and evaluate the following areas at regular intervals during the course of the Agreement:

Summary of Manitoba’s priority areas for investment

In 2020, there were approximately 121,000 children aged 0 to 6 years in Manitoba out of the total population. Currently, there are child care spaces for 26.8% of preschool children.

Manitoba’s priority areas of investments under the 2‐year Action Plan are as follows.

1. Improving affordability

Reducing out-of-pocket parent fees for regulated early learning and child care spaces by an average 50% from 2019 levels by the end of the 2022 calendar year through a percentage threshold increase to the current child care subsidy program having an immediate impact for lower income families. Establishing an average $10 per day out-of-pocket parent fee for children 0 to 6 and working towards implementation of this goal by the end of the 2022 to 2023 fiscal year.

2. Increasing access

Creating 23,000 new full-time equivalent regulated not-for-profit spaces for children age 0 to 6 years by fiscal year 2025 to 2026. Support child care space development in higher need communities (low-income, newcomer, Indigenous, Francophone, coverage rates below the provincial average – child care deserts) through capital funding. The space target will be reviewed by the joint implementation committee at regular intervals to ensure space development targets are consistent with actual demand for child care.

3. Supporting quality and inclusive care

To support quality, in the first Action Plan foundational work will be undertaken to set the stage for future initiatives directed at increasing quality and expanding inclusivity of child care services. Modernizing the workforce certification requirements and process to endorse continued professional development and career laddering in the early learning field will set the stage to ensure the workforce is delivering services based on current early learning information and approaches. Through these initiatives Manitoba will work to increase the percentage of child care workers providing regulated child care in the province who fully meet Manitoba’s certification requirements by 15 percentage points by fiscal year 2025 to 2026.

Future initiatives will be directed at core training to promote increased inclusivity of services respectful of Indigenous history and culture, new Canadians, racialized communities and accessibility for all children. Development of a comprehensive, integrated and culturally responsive curriculum framework promoting inclusive programming will also set the stage of supporting culturally-based programs and ensuring learning experiences that encourage acceptance of diversity and the histories and cultures of Indigenous peoples in all programs.

Manitoba will continue its current investments, and is confident the partnership with Canada, will result in further improvements in quality, affordability, inclusion, and accessibility across the continuum of ELCC programs and services. This will provide children with the opportunity to thrive early in life, better positioning them for success at school entry and parents’ success in entering and maintaining continuous employment.

To support inclusion, Manitoba will develop and fund a plan to ensure that vulnerable communities, including children with disabilities and children needing enhanced or individual supports, Indigenous children, Black and other racialized children, children of newcomers, and official language minorities, have equitable access to regulated child care spaces with consideration to their assessed need for child care as part Manitoba’s enhanced public planning efforts to implement a Canada-wide system.

Manitoba will also continue to focus on growing child care in harder-to-reach and vulnerable communities through a strategic growth process based on consultations with the Child Care Parent Advisory Committee and the Minister’s Consultation Table and sub-committees. As well, ongoing assessment of the regional provincial coverage rates for child care will consider evidence of need such as demographic data, employment rates, income levels, and the presence of existing early years programs and services. Additionally, the province will adopt innovative approaches and programming that are appropriate to the developmental capabilities of the child, provided by trained individuals, and considers the social, cultural, jurisdictional, and linguistic needs of Manitobans.

Finally, Manitoba will establish a process that focuses on Indigenous ELCC goals and promotes opportunities for partnership with lead organizations implementing the Indigenous Early Learning and Child Care (IELCC) Framework. The Minister’s Consultation Table will be expanded to include representatives from IELCC in key forums to support Indigenous perspectives across the 6 pillars of Manitoba’s plan and a sub-committee launched to build and strengthen child care services for Indigenous families.

Section 1: Affordability

Manitoba has the second lowest parent fee structure in Canada among provinces with regulated rates for facilities receiving operating funding. Licensed facilities that do not receive an operating grant for its spaces can set their own parent fees. However, if the parents of a child who is enrolled in an unfunded facility are entitled to a child care parent fee subsidy, the facility can only charge up to the maximum regulated amount for that space.

Funded facilities follow a schedule of maximum daily parent fees that can be charged for the type of child care spaces being offered. The maximum daily fees per child vary by the type of child care and hours of service.

Table 3: Maximum daily child care fees by care type and age group (funded facilities)

Note: This table was changed for accessibility reasons.

Table 3a: Type of child care: infants
Hours of care per day Centres and family and group child care homes (licensee is ECE level 2 or ECE level 3) Family or group child care (licensee is not classified as ECE level 2 or ECE level 3)
Less than 4 hours $15.00 $11.10
4 to 10 hours of full time child care $30.00 $22.20
More than 10 hours $45.00 $33.30
Table 3b: Type of child care: preschool
Hours of care per day Centres and family and group child care homes (licensee is ECE level 2 or ECE level 3) Family or group child care (licensee is not classified as ECE level 2 or ECE level 3)
Less than 4 hours $10.40 $9.10
4 to 10 hours of full time child care $20.80 $18.20
More than 10 hours $31.20 $27.30
Table 3c: Type of child care: nursery
Hours of care per day Centres and family and group child care homes (licensee is ECE level 2 or ECE level 3) Family or group child care (licensee is not classified as ECE level 2 or ECE level 3)
Less than 4 hours $10.40 N/A

Manitoba’s Child Care Subsidy Program provides provincial support to eligible families to help with the cost of care by reducing child care fees for children from the ages of 12 weeks to 12 years. There is a $2 per day non-subsidized fee that all families must pay, including those who receive a full child care subsidy.

To ensure affordability for all families, Manitoba will move to a household income based approach to determine child care fees for low and middle income families to achieve an average $10 per day out-of-pocket parent fee per child. As a first step, a percentage threshold increase will be implemented in the current subsidy system to ensure additional lower income families receive a full subsidy and only pay the out-of-pocket $2 daily fee per child. The threshold increase will be implemented by the end of the calendar year in 2022. This will allow for dedicated focus to be placed on re-developing Manitoba’s financial assistance/subsidy program for parents that will support achieving a $10 per day out-of-pocket average parent fee per child by March 2023, 3 years ahead of the target. The $10 per day average parent fee will apply to all types of child care spaces for children 0 to 6 years of age. Child care parent fees will be determined based on gross household income with the subsidized portion being paid directly to regulated child care facilities.

Manitoba is currently undertaking a full review of its existing fee structure and updating its modelling to better reflect provincial and Canada-wide objectives. This work is expected to be completed in the fall 2021 and will inform Manitoba’s future approach to income-based subsidies and child care fees. Once the revised modelling is complete, Manitoba will provide Canada with a letter outlining its findings and next steps in a Canada-wide system.

Threshold increase for subsidies

A percentage threshold increase for parent fee subsidies will be made in the current system to support full subsidy for families with a gross household income that is equivalent to a net income of $35,000. This will result in a reduction in out-of-pocket parent fees immediately for approximately 4,800 additional children and lower income families. 

Financial assistance system for parent fees

As part of the ELCC transformation project, a new financial assistance and subsidy system will be developed to support income-based parent fees to achieve an average out-of-pocket $10 per day fee per for preschool children aged 0 to 6. This will increase the number of families receiving financial assistance through full and partial subsidies paid directly to regulate child care facilities and out of pocket fees ranging from $2 to $10 per day for lower and middle income households.

Parent fee revenue supplement

A supplement to cover the difference/loss in revenues for child care providers from lower parent fees for over 26,800 spaces for 0 to 6 in not-for-profit centres and homes will be developed.

Affordability targets

Table 4: Affordability
Program initiative Outputs/outcomes Indicators Targets Fiscal year Total investment
Threshold Increase: current subsidy system Increase gross income threshold with percentage increase equivalent to an average $35,000 net household income for full subsidy Greater number of families receiving subsidy to reduce out-of-pocket parent fees on average by 50% Up to 4,800 additional children receive a child care subsidy 2021 to 2022

2022 to 2023		 $64,550,803
Financial assistance system for parent fees based on household income Determines out-of-pocket parent fees paid by parents from $2 at the lowest to $10 per child for lower and middle income families. Average out-of-pocket parent fee of $10 per day per child for children 0 to 6 years Up to an additional 10,000 children receive a child care subsidy 2022 to 2023 $39,088,080
Parent fee revenue supplement for service providers (operating funding) Supplement to service providers to cover difference in revenue for lower parent fees Supporting the average $10 per day fee: number of facilities receiving supplement Approximately 26,800 lower parent fees supported by supplement 2022 to 2023 $75,949,321

Section 2:  Accessibility

Regulated space overview

In Manitoba, regulated ELCC spaces for preschool children from 0 to 6 years old are provided by child care centres, nursery schools and home based child care providers (family child care and group child care homes) primarily operated by women as a self-employment business.

The majority of Manitoba’s child care spaces (95%) are located within not-for-profit child care facilities. Private, for-profit child care centres, which provide only 5% of spaces in Manitoba compared to 30% of licensed facilities in Canada, are businesses and owner-operated, mostly by women. They generate revenue from parent fees, and have a parent advisory committee. In contrast, non-profit child care centres generate revenue from a combination of provincial operating grant funding and parent fees, under the authority of a board of directors. Under current legislation, for-profit child care centers are not eligible for provincial grant funding, including capital, start-up and operating grants, but they are eligible for parent fee subsidies providing they charge the regulated maximum fees to subsidized families.

For-profits mainly rely on parent fees for revenue, and they establish parent fees that support their business models with infant fees ranging between $30.00 per day to $88.00 per day; and preschool fees ranging between $20.80 per day to $69.65 per day. In comparison, Manitoba’s current funding model provides non-profit child care facilities in receipt of operating grant funding with a daily revenue of $73.75 per infant space and $36.88 per preschool space.

Table 5:  Current annual revenue per child (January 1, 2016), centres
Categories Daily fees % of annual revenue Grants % of annual revenue Annual revenue totals Daily revenue
Infant $7,800 42% $11,375 59% $19,175 $73.75
Preschool $5,408 58% $4,180 42% $9,588 $36.88

Home-based child care is an important element in Manitoba’s ELCC system. Family child care homes are licensed for up to 8 children, while group family child care homes employ staff or have a second licensed holder and may be licensed for up to 12 children. Licensed home-based providers provide a total of 3,282 spaces. Manitoba has increased operating grant funding to home-based providers over fiscal year 2017 to 2018 through fiscal year 2019 to 2020 to encourage the growth of child care spaces through this child care option.

As of March 31, 2021, Manitoba had a total of 2,992 licensed spaces in facilities offering nursery school programming for less than 4 continuous hours in a morning and/or an afternoon session, per day. The majority of programs offer 2 sessions in a day that are 2.5 hours in length. Typically nursery school programs operate 10 months of the year (September through June). Effective January 1, 2021, Manitoba began to transition to a single-funding model for nursery school programming which resulted in increased operating grants funding to regular nursery schools which represent the majority of programs.

Extended hour child care which provides child care services in the evenings, weekends or overnight, is a vital component of modernizing Manitoba’s ELCC system to be more flexible and responsive to current needs of families. As of March 2021, there were 262 regulated extended hour child care spaces. The recent COVID-19 experience highlighted the need for child care outside of regular business hours for essential service workers and it is expected that this will continue as service sectors such as retail and hospitality re-open to full capacity while many office based businesses continue with remote work locations. In addition, with demand out-pacing available spaces pre-pandemic, child care facilities could fill their licensed space capacity with full-time enrollments with regular business hours. This resulted in limited flexibility to offer part-time child care services through a shared space and parents with part-time employment often having to pay for a full-time space. In order to support parents as they return to the workforce or seek education or training opportunities, a flexible child care system that offers options for families is crucial, particularly for families that require non-standard hours of child care services. Greater flexibility is required to support part-time child care needs and this will be addressed through this agreement with a per diem for shared spaces.

The number of accessible ELCC spaces differ widely across the province, with the most availability in urban communities and the least in rural and Northern areas. Smaller and remote communities are often child care deserts with limited or no child care available. Within Winnipeg, accessibility varies between higher and lower income neighbourhoods. These differences illustrate the specific ELCC needs within communities and across family income levels. Manitoba is taking a flexible approach to child care transformation with options that are intended to address this discrepancy in coverage rates by meeting the specific needs of families for child care services, such as parents who have difficulty finding spaces because they work non-standard hours.

Agreement initiatives

Manitoba is committing to using federal funding to further meet the need for child care by increasing the net number of full-time equivalent regulated ELCC spaces in the province by 23,000 not-for-profit spaces for children 0 to 6. Manitoba will discuss with Canada progress and demand levels at regular intervals leading up to fiscal year 2025 to 2026 at the joint officials’ implementation committee. This will allow Manitoba and Canada to continually evaluate child care demand through the term of the Agreement to make future adjustments to ensure development is in line with actual demand.

Manitoba will develop an expansion plan and strategy to guide the development of new spaces. This expansion plan may include, for example:

Extended hour child care benefit

In order to support parents as they return to the workforce or seek education or training opportunities, a flexible child care system that offers options for families is crucial, particularly for families that require non-standard hours of child care services. The extended hour child care benefit will offer operating support for facilities that provide child care services outside of regular business hours that are equivalent to full-time child care: greater than 4 hours per day based on the Community Child Care Standards Act and Regulations.

Manitoba’s experience throughout the COVID-19 pandemic has shown that a number of employment sectors, particularly those employing lower- and middle-income workers, require employees for non-standard hours of work. As we continue to recover from the pandemic, essential service workers and, for example, those workers in the hospitality, retail and manufacturing industries will need greater access to child care outside of traditional business hours. The extended hour child care benefit will help expand child care services for families who have said they need expanded hours of child care to serve the demands of their employment.

Shared space per diem

Manitoba will increase the number of part-time child care spaces, which will provide more options for families who do not need full-time child care services. This will support up to 1,450 part-time spaces, and require an investment of $3.24M.

These initiatives will increase the province’s ELCC coverage rate by increasing flexibility and options in Manitoba’s ELCC system that will be responsive to all families, including those more in need of child care. Part-time child care is often required by parents newly entering or re-entering the labour market. This is often the first stage to employment for many lone and younger parents that need affordable as well as flexible child care.

Employment transition program

Manitoba’s Employment and Income Assistance (EIA) program assists Manitobans in regaining their financial independence by helping them transition from income assistance to gainful employment. EIA supports increased self-sufficiency by reducing barriers to employment and providing low-income Manitobans with increased opportunities to learn, earn and save. The EIA program works collaboratively with other provincial departments, other governments and non-governmental stakeholders to support economic inclusion and access to benefits for multi-barriered low-income Manitobans.

One of the groups experiencing the greatest challenges to make and fulfill employment plans are lone parents which are households largely led by women. A primary barrier for this group is accessible and affordable child care.

To support the transition from EIA benefits to financial independence, Manitoba will develop a pilot project to remove barriers such as access and affordability for child care by supplementing the total costs of child care for parents on EIA for 6 months as they enter the workforce. These guaranteed child care spaces will provide low-income parents time to establish themselves in their jobs without having to immediately manage the search and cost of child care. By providing funding for a targeted 100 guaranteed spaces (spaces in which parent fees and operating grants are both subsidized regardless of utilization), beginning in late 2022 (investment of $1.0M for the partial year) and a total of 300 spaces in existing programs going forward (investment of $3.6M annually), up to 600 low income parents can have a good start on employment each year.  This will also provide ample time for parents to find a permanent community space and apply for the financial assistance/subsidy program.

Capital development

Previous capital grant funding has been provided through the community capital building fund to support new space development in non-profit centres. Successful project proponents received funding support based upon a percentage of total project costs; 40% up to a maximum of $600K. With grant funding eligibility being restricted to non-profit child care providers, boards of directors have a project management role including the responsibility for securing full financing for the development project along with managing the construction of the new or expanded facility. This model has resulted in many delays as boards are largely made up of parent volunteers with limited experience and a high turn-over rate in board membership. Additionally, funding based on the full project cost rather than cost per space development resulted in lower value for the money invested, particularly for expansion projects with limited new space increases.

To work towards the 23,000 space target, new space creation through capital investments will be based on a $12,000 per space development grant. This will allow for greater flexibility in the scale of projects by eliminating maximum grant ceilings and confirm investments are directed at increasing the net number of regulated non-profit spaces. Requests for capital grant funding will be accepted from municipalities, communities, organizations and existing child care providers to support the development of new non-profit child care spaces in higher-needs communities, with highest priority given to areas where there are very limited services – also known as child care deserts. Proposals for capital development projects will be assessed for priority funding based on community need and percentage of child care spaces to 0 to 6 population in the region, presence of other child care programs in the immediate community and the utilization level of those spaces, and child care services directed at supporting Indigenous, newcomer, minority language, low-income or racialized communities.

Capital funding commitments will be identified to support a development target of 5,890 child care spaces to begin working towards the commitment to create 23,000 spaces by the end of fiscal year 2025 to 2026.

Accessibility targets

Table 6: Accessibility
Program initiative Outputs/outcomes Indicators Targets Fiscal year Total investment
Extended Hour Child Care Benefit Development of extended hour care spaces for evening and weekend child care: operating and start up support Flexible child care options for families to support employment outside of regular business hours 5% of facilities develop 1,700 spaces (centers and family home-based) by the end of fiscal year 2022 to 2023 with
flat rate operating fee		 2021 to 2022

2022 to 2023		 $16,197,315
Shared space per diem Increase the number of part-time child care spaces Flexible child care 5% of spaces offering part-time care (1,036 spaces).
7% of spaces offering part-time care an additional 414 spaces (total 1,450)		 2021 to 2022

2022 to 2023		 $1,345,500
Capital development investment Funding to support new space creation at up to $12,000 per space in higher need communities Improved child care coverage rates in higher need communities Funding to create up to 5,890 spaces prior to 2025 to 2026 2021 to 2022

2022 to 2023		 $70,680,000
Employment Transition Program (Pilot) Total cost of child care covered for low-income parents entering employment for 6 months Number of children enrolled in program.
Number of children remaining in child care 3 months after program.		 Guarantee 100 spaces for 5 months.
300 spaces in existing programs		 2021 to 2022

2022 to 2023		 $3,003,000

Section 3:  Quality

Manitoba has a history of providing high-quality, accessible, and affordable child care, and has made efforts to maintain education and training standards for child care staff, including Child Care Assistants (CCA), and Early Childhood Educators (ECE) level 2 and level 3. The Government of Manitoba provided $9.4M to child care providers in the 2019 to 2020 fiscal year directed at supporting the workforce. Aspects of this funding included a wage adjustment grant, tuition support, pension reimbursements, staffing replacements grants, and College Expansion and Scholarships for ECE education and training. The budget for these last 2 items was transferred to the Department of Education in fiscal year 2020 to 2021 for administration as they have the infrastructure to more effectively offer and manage such funding.

Manitoba will increase the percentage of child care workers providing regulated child care in the province who fully meet Manitoba’s certification requirements by 15 percentage points by fiscal year 2025 to 2026. Manitoba’s initiatives that support a quality ELCC system include supports for wages through operating funding, the re-development of ELCC curriculum framework and modernization of the workforce certification requirements and process. These foundational items will be developed to support greater inclusivity in child care services and programs to build a comprehensive, integrated and culturally responsive child care system. This will occur through the implementation of curriculum requirements that promote including Indigenous knowledge, teachings and perspectives into daily programming activities, and ensuring re-certification includes requirements for professional development focused on the capacity of the workforce to deliver services based on current early learning approaches encouraging increased inclusivity of services respectful of Indigenous history and culture, new Canadians, racialized communities and accessibility to all children.

Wages

Across Canada, the ELCC sector advocates consistently and raises concerns about low wages for the level of work performed in educating and taking care of children in the early learning stages of development. In Manitoba, the average hourly wages for child care staff is not standard and there is a wide range of wages being paid as illustrated below.

Table 7:  Average hourly rate of pay in fiscal year 2020 to 2021

Note: This table was changed for accessibility reasons.

Table 7a:  Directors
Salary rate and hours ECE level 3 ECE level 2
Minimum $22.00 $20.40
Maximum $68.90 $37.94
Mean $33.92 $28.74
Average hours worked/week 39.0 39.0
Table 7b: Assistant directors
Salary rate and hours ECE level 3 ECE level 2
Minimum $20.07 $18.20
Maximum $50.90 $33.19
Mean $28.95 $25.17
Average hours worked/week 38.5 38.5
Table 7c:  Supervisors
Salary rate and hours ECE level 3 ECE level 2 CCA
Minimum $17.08 $17.68 $15.00
Maximum $33.36 $35.76 $21.16
Mean $24.81 $22.97 $17.92
Average hours worked/week 38.3 38.3 38.3
Table 7d: Child care staff
Salary rate and hours ECE level 3 ECE level 2 CCA CCA (IT)*
Minimum $16.55 $11.90 $11.90 $11.90
Maximum $40.93 $28.63 $43.75 $22.90
Mean $21.77 $19.77 $13.59 $14.78
Average hours worked/week 38.4 38.4 38.4 38.4

*CCA (IT) is a child care assistant in training

The proposed minimum wage grid in the Canada-Wide Agreement provides a blue print to enhance wages for the ELCC sector in Manitoba. However, facilities operate as private businesses, and boards of directors are responsible for establishing wages at non-profit centres, and owner/operators at for-profit facilities. The minimum wage grid will provide guidance to non-profit boards in developing equitable wage scales by establishing a minimum wage based on the position and classification of the employee. The average wage for a position will assist in developing further levels/steps within a range that can be supported through revenue potential from operating funding and parent fees. With a far reaching range of wages offered in Manitoba’s regulated sector, implementing a standard wage scale would result in a number of outlier wages being reduced or frozen. The minimum wage grid allows boards of directors in non-profit centres the ability to address this with greater flexibility as long as CCAs and ECEs are paid the minimum wage and all the wages in a position and classification reach the average.  This model preserves the authority of boards and owner/operators while ensuring competitive wages are provided to the workforce to foster retention and recruitment of new ECEs into the field.

Implementing the Minimum Wage Grid may require regulatory amendments under The Community Child Care Standards Act or through the proclamation of The Early Learning and Child Care Act. Reporting on implementation and wages actually paid will be monitored and reviewed through required annual audited financial statements each funded centre must provide to receive continued funding. In addition, each non-profit facility in receipt of funding must also submit annual budgets outlining forecasted expenditures including wages paid to their employees.

Implementation of the new wage grid will require an increase in revenue generated by non-profit centres and funded family-based providers. A wage grid supplement through operating funding will be offered to support these increased operational costs.

Workforce certification and training

Manitoba has a history of supporting education and training for the ELCC sector. The table below illustrates several initiatives, including training reimbursement for CCAs, staff replacement grants for facilities to hire substitutes and support CCAs in attending training to obtain their ECE certification, tuition support, and college expansions and scholarships.

Table 8:  Initiatives to support education and training for the ELCC sector
Initiative Fiscal year 2014 to 2015 Fiscal year 2015 to 2016 Fiscal year 2016 to 2017 Fiscal year 2017 to 2018 Fiscal year 2018 to 2019
Training ($400/course) $193,823 $216,019 $236,084 $215,230 $193,694
Staff replacement grant $1,252,669 $1,487,005 $1,314,773 $1,556,687 $1,355,079
Tuition support $162,569 $145,780 $107,093 $97,260 $78,000
College expansion and scholarships $220,000 $478,600 $343,100 $225,731 $407,402

Research shows that well-educated, well-trained professionals are the primary factor in providing high-quality early childhood education and care. In Manitoba, competencies for early childhood education programs are established by the Child Care Qualifications and Training Committee (CCQTC). Under section 28 of The Community Child Care Standards Act, members of the CCQTC are appointed to research, review and make recommendations about any matter relating to the qualifications, preparation and training of all staff working in early learning and child care facilities and early childhood educators. This includes reviewing new and existing formal education programs offered at post-secondary institutions and making recommendations to the Minister for program approvals. The committee has recently developed new competencies for the 2-year early childhood educator level 2 training programs offered by post-secondary institutions that includes participation in learning experiences encouraging acceptance of diversity and the histories and cultures of Indigenous peoples. The Manitoba Early Childhood Educator Level 2 Competencies ensure that Indigenous perspectives will be integrated into training curricula for students in early childhood educator programs. At the core of these training competencies is the idea that citizenship is an inclusive value creating a sense of belonging, which in turn leads to success in supporting the development of all children to promote school and social readiness.

Under the Early Childhood Workforce Agreement Manitoba plans to secure a consultant to work with the CCQTC and develop a continuum of competencies addressing the full early learning and child care career landscape. This will assist in developing training programs with clear and comprehensive career laddering to attract individuals into an early childhood educator career path and retain them with the opportunities to grow and advance through the system

Building on this, funding under the Canada-Wide Agreement will be allocated to a consultant to lead modernizing Manitoba’s workforce certification requirements and process. The consultant will work collaboratively with the ELCC program and the CCQTC to identify requirements, frequency and mechanisms to support on-going professional development of certified staff. This will also ensure consistent and clear certification requirements for child care assistants to ensure they enter the workforce with the foundational core competencies to perform their jobs and create positive learning environments for young children. Currently there are no standard requirements for these entry level positions outside of completing a 40 hour course related to early childhood education.

Currently, once CCAs and ECEs become certified they remain certified without any re-certification requirements to ensure continuous learning and skill development to make certain they are performing their critical positions with an understanding of the current information and research about early learning and development. Embedding professional development requirements in a re-certification process at prescribed intervals will encourage ongoing training in early child education and development and elevate the quality of services in regulated child care facilities. By fiscal year 2025 to 2026, Manitoba will be increasing annual spending for training and professional development at least in proportion to the increase in regulated child care spaces. This training will be reflective of Manitoba’s modernization of its ECE certification program and the redevelopment of the “Early Returns” Curriculum.

Curriculum

In Manitoba, regulated infant, preschool and nursery school programs are required to have curriculum as part of their licensing requirements. Current curriculum is based upon Manitoba’s “Early Returns” curriculum framework for infants, preschool and nursery school programs, developed in 2011. Although not regulated to have a formal curriculum, home-based providers are strongly encouraged to implement a play-based curriculum in their facilities. With Bill 47, The Early Learning and Child Care Act, the requirement for a formal curriculum is planned to be included for all types of child care.

Manitoba is committed to ensuring that children from birth to school entry and their families have increased access to comprehensive, integrated and culturally responsive early childhood programs that support healthy early childhood development and improved outcomes for all children, through the development of a strong curriculum framework. To support this initiative, Manitoba will secure a consultant to lead the development of an updated, adaptable curriculum framework that establishes a foundation on which child care providers can build their programming. An updated curriculum will align with Manitoba’s updated ECE level 2 competencies for ECE education and training programs, by integrating Indigenous perspectives into culturally safe and inclusive programming. This will support new grads to apply and incorporate Indigenous knowledge, teachings and perspectives learned during their post-secondary studies into daily programming activities with children in their care. The development of a new curriculum framework will be advantageous for long-time sector staff who have not recently enrolled in post-secondary studies to learn and reflect as they plan, develop and implement age-appropriate activities that promote a shared understanding of Canada’s Indigenous peoples and reconciliation. Consultation related to this work will include the Minister’s Consultation Table sub-committee on Indigenous child care to ensure development is aligned with the principles outlined in the Indigenous Early Learning and Child Care Framework and the priorities of Manitoba’s Indigenous communities.

The Community Child Care Standards Act is a law of general application. Manitoba has provided early learning and child care consultation and guidance to First Nations communities at their request for many years, but does not enforce a formal role in licensing under the authority established in the legislation. The preferred approach is to meet and engage when invited.

All children are accepted into regulated child care settings and spaces, including children who live on reserve if their preferred child care option is a facility off the reserve community. To advance Indigenous based programming an Indigenous equipment and programming grant has been offered for the past 3 years initially targeting the 15 regulated child care facilities that have self-declared as offering culturally based programs and most recently to facilities with a plan to begin offering Indigenous content. The Child Care Qualifications and Training Committee has also been supporting Louis Riel College in the development of the ECE training program that targets training Indigenous ECEs to increase their presence in the workforce. 

Home-based child care

To increase quality and be responsive to community needs, Manitoba will work with community organizations through requests for proposals to establish a local agency-based model for recruiting, licensing, monitoring and supporting home-based providers.

Manitoba has launched a number of initiatives in an attempt to better support this valuable part of the regulated sector including a mentorship program for new home-based providers and training opportunities exclusively planned for licensed child care homes. Additionally, under an Agreement with Family Dynamics, supportive and professional development services have been offered to providers in Winnipeg with the goal of reducing isolation and encouraging networking. Despite these efforts and 3 increases in operating funds, retention of home-based child care providers continues to be a point of concern.

It is anticipated that the focused support that could be offered in an agency-based model to support, monitor and license home-based child care providers will result in greater retention and quality programming that can respond to higher need communities. Manitoba will maintain funding to home-based providers to ensure that they continue to provide quality, subsidized child care in existing spaces at reduced fees, but move to block funding to allow for flexibility in the type of spaces offered to be responsive to changing child care demands, particularly in smaller rural communities. This model will promote better networking between providers, focused support for the unique challenges in offering home-based child care and training that reflects community and family needs that are accessing the home-based child care services. This is expected to result in greater recruitment and retention of home-based providers.

Business improvement grant

With moving towards a Canada-Wide system for parent fees and to support increased flexibility and responsiveness of regulated programs, facilities will need to make business management improvements. This grant will support the equipment and training needed to support these transitions to increase the quality of services. The grant will allow child care facilities to upgrade or secure technology solutions and equipment to meet business needs.

Quality targets

Table 9: Quality
Program initiative Outputs/
outcomes		 Indicators Targets Fiscal year Total investment
Wage grid operating supplement through operating funding Benefit to support increased operating costs with increased average wages through operating funding Average ECE minimum wage of $25.89 and average ECE wage of $27.77 Support for wage increases for 3,400 ECEs and CCAs 2021 to 2022

2022 to 2023		 $33,289,945
Curriculum re-development:  adaptive integrated framework Development of a comprehensive, integrated and culturally responsive curriculum framework promoting inclusive programming Quality/inclusivity N/A 2021 to 2022

2022 to 2023		 $178,400
Certification requirements modernization Full learning competencies continuum to support formal training programs and certification requirements of the workforce that require ongoing professional development Quality/
inclusivity		 N/A 2021 to 2022

2022 to 2023		 $178,400
Business Improvement Grant One-time grant funding to support business management improvements:  technology Quality Up to $5,000 for centres and $2.500 for homes.
75% of facilities 		2021 to 2022 $3,500,000
Home-Based Agency Model Increase the number of home-based providers and spaces Flexible child care 2.5% annual net increase in home based spaces.
Through RFP identify 4 organizations to license, monitor and support home-based providers through a community approach.		 2022 to 2023 $1,300,000

Section 4: Inclusivity

To support the commitments of the Canada-wide vision, Manitoba will use federal investments to develop and fund a plan to ensure that vulnerable communities, including children with disabilities and children needing enhanced or individual supports, Indigenous children, Black and other racialized children, children of newcomers, and official language minorities, have equitable access to regulated child care spaces with consideration to their assessed need for child care as part Manitoba’s enhanced public planning efforts. This plan will be discussed by the Implementation Committee to determine future actions to promote inclusion of all children.

Currently, Manitoba already funds the Inclusion Support Program (ISP) that provides supports to children with disabilities and children needing enhanced or individual supports to allow their participation in child care by building the overall capacity of providers as well as directed supports for a child. On average 57% of centres and 5% of homes receive additional funding to directly support children with additional needs. All regulated child care facilities are required to have an inclusion policy that supports the enrollment of children with additional support needs. Since fiscal year 2010 to 2011 on average 1,507 unique children receive supportive funding through the Inclusion Support Program. The fiscal year 2019 to 2020 annual investment per child was $10,200. Additionally many facilities receive support from child development workers to increase their overall capacity. In fiscal year 2019 to 2020, 21 training sessions were offered by child development workers and assistance was provided in developing 88 consultations on improving capacity. These actions benefitted approximately 3,200 children.

The Inclusion Support Program (ISP) assists early learning and child care facilities to address barriers to inclusion, allowing a child with additional support needs to meaningful and effectively participate in programming and activities with their peers. All services are provided in response to an identified need and could include: training, behavioural interventions, equipment/modifications or grants to enhance the staffing ratio and support inclusion.

As part of Manitoba’s Action Plan under the Canada-Manitoba Early Learning and Child Care Agreement, the department implemented a dual-stream service and funding approach with focus on integration and coordinating services. In order to achieve this, the department hired 3 Child Development Workers to support individual facilities, provide training and increase sector capacity to enhance inclusive practices.

Specialized training

Training in Applied Behavioral Analysis (ABA) is offered in partnership through St. Amant Centre, providing the sector with increased skills to work with children with diverse needs. Additionally the Circle of Security (COS) program has been integrated as part of ISP, providing training to staff to work with children with additional behavioral and emotional support needs focusing on attachment and addressing the reason behind the behaviour not the behaviour itself. These programs are funded under the Canada-Manitoba ELCC Agreement, and will be part of the extension of this Agreement.

Some of the key achievements of ISP in fiscal year 2020 to 2021 include:

Indigenous and francophone funding

The Government of Manitoba is committed to engaging with Indigenous governments toward achieving an ELCC system that is inclusive of all Indigenous peoples. It is also committed to ensure that children from diverse communities, including official language minorities, have access to regulated child care.

For example, the Indigenous Programming Grant, and the Francophone Training Enhancement Grant are both offered under the ISP umbrella, and are funded under the Canada-Manitoba ELCC Agreement, and will see continuation under the forthcoming extended Action Plan for fiscal year 2021 to 2022 through fiscal year 2024 to 2025. 

The Indigenous Programming Grant provides financial resources to self-identified Indigenous programs, which can be used to purchase resources and equipment supporting an Indigenous-focused curriculum that is responsive to the needs of staff, children, and families in their communities. In Manitoba’s fiscal year 2017 to 2018 to fiscal year 2019 to 2020 Action Plan, 15 self-identified Indigenous ELCC facilities, serving 530 children received $126,000 in grant funding to support their Indigenous programming and curriculum. At the time, this represented 100% of the existing self-identified Indigenous facilities in Manitoba.

The Francophone Training Enhancement Grant has provided up to $50,000 to Fédération des parents de la francophonie manitobaine (FPFM) to support training and professional development in fiscal year 2019 to 2020.  The purpose of the grant was to engage FPM to ensure ELCC resources and professional development are accessible to the Francophone child care community throughout Manitoba.

The Science of Early Child Development (SECD) Access Portal, currently funded under the Canada-Manitoba ELCC Agreement, will continue in the forthcoming Action Plan for 2021 to 2022.  Under the Canada-Wide ELCC Agreement, Manitoba will implement an initiative to have the SECD Access Portal modules translated into an official French Language version, in order to increase inclusivity, and continue supporting the Francophone ELCC community.  The estimated cost to translate all the necessary modules in SECD would be $900,000.

Manitoba will build on existing initiatives to advance inclusive services with a focus on areas that support skill development and specialised programming in higher need communities.

Expansion of the Minister’s consultation table

As one of the primary mechanisms to support stakeholder consultations to continually build and strengthen Manitoba’s child care system, the Minister’s Consultation Table membership will be expanded to include representatives from the provincial organizations executing the Indigenous Early Learning and Child Care (IELCC) Agreements. A sub-committee on Indigenous child care will be established to identify opportunities for partnership to advance delivery of culturally based programs.  Manitoba will develop a collaborative plan with relevant First Nations and Métis Nation organizations in Manitoba to ensure that Indigenous children resident in Manitoba will have access to affordable, high-quality and culturally appropriate ELCC.

Abecedarian program expansion

Currently in Manitoba there is one full Abecedarian child care program offering the full wrap-around service for the children and families connected to the centre. This facility has successfully improved literacy skills in children and parents in this higher need community. Through the Canada-Wide funding an additional 4 sites will be established in higher need communities.

Abecedarian is an intervention that focuses on children with multiple risk factors in their lives that are barriers to learning. Abecedarian sees language as the core of early learning; strong language skills allow for greater cognitive and social/emotional development. The approach is also based on an understanding that language grows best in respectful, responsive, reciprocal relationships. In partnership with training and support offered by Red River College, Lord Selkirk Park Child Care Centre opened in February 2012, and began implementing the Abecedarian approach. Early Development Instrument (EDI) results showed that a large number of children living in this area were not ready for school. The high quality early childhood intervention reversed this trend in this high need, low-income community.

Manitoba access portal: Science of early child development

The Manitoba Access portal was launched under the Canada-Manitoba Early Learning and Child Care Agreement to allow province-wide access to all Manitobans but specifically to support the ELCC workforce to continually advance their knowledge and skills on early child development based on the most recent research offered through the living text book modules. The tool only offers the introductory module in French, which limits its capacity to support the Francophone sector. Investments will be made to begin translation of the additional modules to support the same professional development and learning opportunities across the system.

Diversity programming funding

Manitoba has a diverse population with many communities expressing the need to preserve their culture and learn more about others at all stages of life. Integrating more culturally based programming in child care encourages acceptance of diversity and increases inclusivity as a core principle in lifelong learning. A one-time funding opportunity will be offered to facilities, up to $40K, to implement cultural programming.

Ka Ni Kanichihk building expansion

Ka Ni Kanichihk is a non-profit community organization with a long history of providing a range of supportive services to Indigenous peoples. The organization is undertaking a significant project in constructing a new building that will include a 48 space child care centre, as well as supportive programming to the community. A provincial capital grant was approved for the project. Under the Canada-wide funding an additional $300,000 development and programming grant will be provided to address costs of integrating a full cultural-based curriculum in the child care program.

Inclusion targets

Table 10: Inclusivity
Program initiative Outputs/outcomes Indicators Targets Fiscal year Total investments
Manitoba Access Portal:  Science of Early Child Development 3 additional modules translated to French Increased professional development through the use of the living textbook by the Francophone ELCC sector 50% of Francophone facilities access the textbook through the Manitoba Access portal 2022 to 2023 $1,200,000
Abecedarian Program Expansion Additional 4 sites in higher need communities Increased literacy and school readiness for children attending in higher need communities 4 sites fully implement the Abecedarian Approach 2021 to 2022

2022 to 2023		 $1,448,000
Ka Ni Kanichihk Building Expansion Development and programming grant to address costs of integrating a full cultural- based program Increased quality and inclusivity of programming for the Indigenous community served Full Implementation of an Indigenous based curriculum and programming 2022 to 2023 $300,000
Diversity Programming Grants One-time grants up to $40,000 to implement cultural programming Quality/ inclusivity 50 facilities implement culturally based programming 2022 to 2023 $2,000,000

Section 5: Reporting

Manitoba is currently undertaking a modernization exercise of its early and learning and child care system. The current legislative, policy and funding frameworks for Manitoba's early learning and child care system are outdated and do not enable a responsive and flexible system to support the evolving needs of children, families or employers. This transformation project is intended to achieve the strategic outcomes anchored by the 5 principles in Bill 47:  The Early Learning and Child Care (ELCC) Act:

  1. ELCC services should ensure the health, safety, development and well-being of children
  2. access to early learning and child care services should enhance the economic opportunities available to parents
  3. ELCC services should be available on a continuum that is responsive to the diverse needs of families
  4. promoting inclusion and respect and accommodating diversity should be inherent in the provision of ELCC services
  5. public funding should promote fiscal responsibility and the sustainability of ELCC services

The strengths in the provincial system and opportunities will support the development of a more efficient and equitable policy framework aimed at increasing child care options that support the continued economic development of Manitoba. This will be anchored by a new legislative framework that allows for responsive quality services, equitable funding support for providers and families, while ensuring high standards in child safety and accessible high quality programs. Work will be focused on improvements in 4 key areas over a 3 year period:

  1. IT Business Solutions that support internal business functions of managing the ELCC program, support licensing, grant payment and reporting system, financial assistance system for parents
  2. modernized funding approach focused on developing an equitable funding approach to support operational costs of facilities
  3. operational improvements including improved governance structure, workforce certification and training and expanding child care options
  4. new legislative and policy framework

This project was launched in January 2021 and will continue through to July 2024. Initial work has focused on developing new legislation and regulations and identifying IT business support needs and working towards competing business requirements to support an IT road map.

As part of Manitoba’s commitments to ensure a Canada-wide system, Manitoba will:

Canada-wide ELCC reporting indicators

Manitoba will work to provide available data on the Canada-wide ELCC Indicators. A Canada-wide system requires significant enhancement and expansion of Manitoba’s current data and reporting to ensure a system that is accessible, affordable, and inclusive for all Canadian families. The table below provides an outline of data to be collected that will be help monitor progress, identify gaps in the system and inform policy development to support Canada-wide child care vision. The Implementation Committee will discuss data reporting requirements and potential IT solutions. The Committee will also address the development and phased in implementation plan of an annual census of child care providers.

Table 11: Canada-wide ELCC reporting Indicators

Note: This table was changed for accessibility reasons.

Table 11a: Principle: affordability
Outcome Indicator Targets Funding Current data availability Annual report
Decrease the average daily child care fee Average daily parental out-of-pocket fee for regulated child care spaces at the end of each fiscal year 50% reduction in parent fees by 2022.

An average of $10 a day by fiscal year 2025 to 2026 for all regulated child care spaces.		 TBD Data not currently available TBD
Decrease the average daily child care fee Number of children aged under age 6 and 6 to 12 years receiving fee subsidies, broken down by families receiving partial and full subsidies (see Table 12) TBD TBD Data not currently available TBD
Table 11b: Principle: access
Outcome Indicator Targets Funding Current data availability Annual report
Increase number of ELCC spaces available Number of ELCC spaces available during the fiscal year:  broken down by age groups of child and type of setting TBD TBD Data not currently available TBD
Increase number of ELCC spaces available Number of net new spaces created during the fiscal year:  broken down by age groups of child and type of setting TBD TBD Data not currently available TBD
Increase number of ELCC spaces available Number of children on waiting lists to access regulated ELCC spaces TBD TBD Data not currently available TBD
Table 11c: Principle: quality
Outcome Indicator Targets Funding Current data availability Annual report
Increase quality early learning and child care Number and percentage of staff working in regulated child care programs in who fully meet the certification/educational requirements TBD TBD Collected TBD
Increase quality early learning and child care Wages of the early childhood workforce according to the categories of certification, including any wage enhancements, top-ups and/or supplements (see Table 13) TBD TBD Collected TBD
Increase quality early learning and child care Annual public expenditure on training and professional development of the early childhood workforce TBD TBD TBC TBD
Increase quality early learning and child care Average child-to-staff ratio among licensed child care service providers TBD TBD TBC TBD
Table 11d: Principle: inclusivity
Outcome Indicator Targets Funding Current data availability Annual report
Increase number of inclusive spaces Number of inclusive spaces created/converted:  broken down by age group of child and type of setting TBD TBD TBC TBD
Increase number of inclusive spaces Number and proportion of centers/providers that provide flexible arrangements (that is, non-traditional arrangements such as flexible/irregular hours, weekend and emergency services; and geographic distribution of spaces) for harder-to-serve populations of children TBD TBD Data not currently available TBD
Increase number of inclusive spaces Number of children under age 6 and 6 to 12 years with disabilities/varying abilities that are in regulated ELCC  spaces TBD TBD Data not currently available TBD
Increase number of inclusive spaces Number or proportion of child care service providers who provide services that are adapted to the needs of children with disabilities or special needs TBD TBD Collected TBD
Increase number of inclusive spaces Number of Indigenous children under age 6 years in regulated ELCC spaces, where possible broken down by distinction-based TBD TBD Data not currently available TBD
Increase number of inclusive spaces Number of racialized Canadian children, including Black Canadian children under age 6 in regulated ELCC spaces TBD TBD Data not currently available TBD

Table 12:  Subsidies rates, breakdown of age per setting

Note: This table was changed for accessibility reasons.

Table 12a:  Subsidy rates for licensed child care
Maximum daily subsidy rates for licensed child care Subsidy Rate
Infants TBD
2 year olds TBD
3 and 4 year olds TBD
School-age (full day) TBD
School-age (before and after school care (BASC) TBD

The subsidy rate is the maximum amount paid by the provincial/territorial government to the service to cover all or part of the parent fee.

Table 12b:  Subsidy rates for unregulated child care/private sitters
Maximum daily subsidy rates for unregulated child care/private sitters Subsidy Rate
Infants TBD
2 year olds TBD
3 and 4 year olds TBD
School-age (full day) TBD
School-age (BASC) TBD

Table 13:  Minimum wage grid for fiscal year 2022 to 2023

As articulated in section 3, Manitoba will work towards the creation and implementation of a minimum wage grid through regulatory amendments under The Community Child Care Standards Act or through the proclamation of The Early Learning and Child Care Act.

Note: This table was changed for accessibility reasons.

Table 13a: Position: Director ECE level 3
Number of spaces Hourly minimum Hourly average target
50 spaces or less $27.27 $29.23
51 to 150 spaces $30.32 $32.54
151 to 200 spaces $33.75 $36.84
Table 13b: Position: Director ECE level 2
Number of spaces Hourly minimum Hourly average target
50 spaces or less $25.58 $27.40
51 to 150 spaces $28.43 $30.58
151 to 200 spaces $31.69 $33.60
Table 13c: Position: Assistant Director
Level of certification Hourly minimum Hourly average target
ECE level 2 $24.53 $26.30
ECE level 3 $27.20 $29.25
Table 13d: Position: Supervisor
Level of certification Hourly minimum Hourly average target
ECE level 2 $23.32 $25.00
ECE level 3 $25.84 $27.67
Table 13e: Position: Floor staff
Level of certification Hourly minimum Hourly average target
ECE level 2, 2 plus years of experience $20.90 $22.29
ECE level 3 $22.29 $23.77
ECE – entry level $15.50 $16.58
Trained CCA $12.25 $13.11

Section 6: Summary table of priorities and investments

Table 14: Summary of fiscal year investments

Note: This table was changed for accessibility reasons.

Table 14a: Multilateral framework priority area: affordability
Initiative name(s) Proposed activity and expected impacts Targets Fiscal year Total investment
Child Care Subsidy Threshold Increase To support a 50% fee reduction, Manitoba will increase gross income threshold with percentage increase equivalent to an average $35,000 net household income for full subsidy. Up to 4,800 additional children receive a child care subsidy 2021 to 2022 $64,550,803
Financial Assistance System supporting Income Based Parent Fees To support a 50% fee reduction and progress towards an average of $10 per day, out-of-pocket parent fees paid by parents from $2.00 at the lowest to $10.00 per child for lower and middle income families Up to an additional 10,000 children receive a child care subsidy 2022 to 2023 $39,088,080
Parent Fee Revenue Supplement Supplement to cover difference in revenue for lower parent fees Approximately 26,800 lower parent fees supported by supplement 2022 to 2023 $75,949,321
Table 14b: Multilateral framework priority area: accessibility
Initiative name(s) Proposed activity and expected impacts Targets Fiscal year Total investment
Extended Hour Child Care Benefit Development of extended hour care spaces for evening and weekend child care:  operating and start up support 5% of facilities develop 1,700 by the end of fiscal year 2022 to 2023 2021 to 2022 $16,197,315
Shared space per diem Increase the number of part-time child care spaces Up to 1,450 spaces offering part-time child care 2021 to 2022 $1,345,500
Employment Transition Program (Pilot) Total cost of child care covered for low:  income parents on EIA entering employment for 6 months 300 Guaranteed Spaces in Existing Programs servicing up to 600 children annually 2021 to 2022 $3,003,000
Capital Development Funding to support new space creation at up to $12,000 per space in higher need communities Funding to create up to 5,890 spaces prior to fiscal year 2025 to 2026 2021 to 2022 $70,680,000
Table 14c: Multilateral framework priority area: quality
Initiative name(s) Proposed activity and expected impacts Targets Fiscal year Total investment
Minimum Wage Grid Operating Supplement through operating funding Benefit to support increased operating costs with increased average wages Support for wage increases through operating funding support for 3,400 ECEs and CCAs 2021 to 2022 $33,289,945
Curriculum Framework Re-development:  adaptive integrated framework Development of a comprehensive, integrated and culturally responsive curriculum framework promoting inclusive programming. New comprehensive, integrated Framework ready for implementation in fiscal year 2022 to 2023 2021 to 2022 $178,400
Certification Requirements Modernization Development of certification requirements of the workforce that require ongoing professional development Updated certification requirements based on required ongoing professional development 2021 to 2022 $178,400
Business Improvement Grant One-time Grant Funding to support Business Management Improvements:  Technology Up to $5,000 for centres and $2,500 for homes.
870 facilities make business management improvements. 		2021 to 2022 $3,500,000
Home-Based Agency Model RFP process to contract community organizations to monitor, support and license home-based providers 2.5% or 125 net increase in home based spaces by fiscal year 2022 to 2023. 2022 to 2023 $1,300,000
Table 14d: Multilateral framework priority area: inclusivity
Initiative name(s) Proposed activity and expected impacts Targets Fiscal year Total investment
Inclusion Plan Developing and funding a plan to ensure that vulnerable communities child care as part Manitoba’s enhanced public planning efforts to implement a Canada-wide system Inclusion Plan to be developed by fiscal year 2022 to 2023 2022 to 2023  N/A
Manitoba Access Portal:  Science of Early Child Development Translation 3 additional modules translated to French 50% of Francophone facilities access the textbook through the Manitoba Access portal 2022 to 2023 $1,200,000
Abecedarian Program Expansion Additional 4 sites in higher need communities 4 sites fully implementing the Abecedarian Approach by the end of fiscal year 2022 to 2023 benefitting up to 240 children and families 2021 to 2022 $1,448,000
Diversity Programming Grants One-time grants up to $40K to implement cultural programming 50 facilities implement culturally based programming 2022 to 2023 $2,000,000
Ka Ni Kanichihk Building Expansion Development and programming grant to address costs of integrating a full cultural- based program Full Implementation of an Indigenous based curriculum and programming supporting 48 spaces 2022 to 2023 $300,000

Administrative funding:  $32,667,088:  additional staff, equipment, information technology (IT) platforms, MCT, Consultations.

Total federal investment:  $314,208,764.

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