Canada – Nunavut Early Learning and Child Care Agreement - 2021 to 2025

2.1 Objectives

2.1.1 Canada and Nunavut agree that over the period of this agreement, with financial support from Canada, Nunavut will further build its early learning and child care system by addressing local, regional and system priorities that have an impact on families more in need by increasing the quality, accessibility, affordability, flexibility and inclusivity in early learning and child care, towards achieving the following:

1. in line with the vision of access for all children, the Framework establishes broad goals for early learning and child care systems that are of high quality, accessible, flexible, affordable and inclusive. The Government of Nunavut, through the Department of Education is in agreement with these goals and is committed to working towards fulfillment of these goals. These goals are set out in the attached action plan (annex 2)

2.1.2 Canada and Nunavut agree that for fiscal year 2021 to 2022 only, Canada will provide a one-time contribution to Nunavut that will be used to support the recruitment and retention of the early childhood workforce, in accordance with annex 3.

2.2 Eligible areas of investment

2.2.1 Nunavut agrees to prioritize funds provided by Canada under this agreement for regulated early learning and child care programs and services for children under the age of 6 where:

1. regulated programs and services are defined as those that meet standards that are established and/or monitored by provincial/territorial governments
2. early learning and child care programs and services are defined as those supporting direct care and early learning for children in settings including, but not limited to, regulated child care centres, regulated family child care homes, early learning centres, preschools and nursery schools 

2.2.3 Acceptable investments under this agreement may include but are not limited to: capital and operating funding for regulated early learning and child care, fee subsidies, training, professional development and support for the early childhood workforce, quality assurance, parent information and referral, and certain administration costs incurred by Nunavut in implementing and administering this agreement.

2.2.4 Canada and Nunavut also agree to promote, define, and deliver identifiable innovative approaches to enhance the quality, accessibility, affordability, flexibility, and inclusivity of early learning and child care systems, with consideration for those more in need.

2.2.5 Canada and Nunavut agree that funding will be targeted toward regulated programs and activities, as described above, for children under the age of 6, that will have an impact on families more in need such as: lower-income families, Indigenous families, lone-parent families, families in underserved communities, those families with caregivers who work non-standard hours, racialized families including Black families, and children with disabilities and children needing enhanced or individual supports. Needs also include having limited or no access to early learning and child care programs and services in the children’s official language.

2.2.6 In fiscal year 2021 to 2022, given the extraordinary circumstances of COVID-19, Nunavut may allocate funding under this agreement to support short-term measures to minimize the impacts of COVID-19 on Nunavut’s ELCC system. These measures must be aligned with the principles of the Multilateral ELCC Framework (annex 1) and be used to sustain ELCC programs and services.

3.2 Extension of bilateral agreements

3.2.1 Subject to Parliamentary approval of appropriations, Canada commits that the total annual allocation for all provinces and territories for the period of fiscal year 2025 to 2026 to fiscal year 2027 to 2028 will be no less than the total annual allocation for all provinces and territories for the fiscal year covered under the 2020 to 2021 agreement. Funding during the fiscal year 2025 to 2026 to fiscal year 2027 to 2028 period will be provided upon the execution of another extension of this bilateral agreement and conditional on Canada’s acceptance of new action plans and informed by the assessment of the results achieved under the action plan set out in annex 2.

3.2.2 The extension will provide Nunavut and Canada the opportunity to review and course correct, if required, and realign new priorities in future bilateral agreements based on progress made to date.

4.2 Allocation to Nunavut

4.2.1 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.

4.2.2 Canada has designated the following maximum amounts to be transferred in total to all provinces and territories under this initiative with a fixed base rate of $2 million per year for each province and territory and the balance of the funding on a per capita basis for the period starting on April 1, 2021 and ending on March 31, 2025:

1. $399,347,694 for the fiscal year beginning on April 1, 2021
2. $524,347,694 for the fiscal year beginning on April 1, 2022
3. $565,847,694 for the fiscal year beginning on April 1, 2023
4. $565,847,694 for the fiscal year beginning on April 1, 2024

4.2.3 Subject to annual adjustment based on the formula described in section 4.2.4, Nunavut’s estimated share of the amounts described in section 4.2.2 will be:

*Amount represents annual estimates based on Statistics Canada population estimates

4.2.4 The final yearly amount to be paid to Nunavut will be calculated using the following formula F x K/L, where:

• F is the annual total funding amount transferred to provinces and territories minus the base funding
• K is the total population of Nunavut, as determined using annual population estimates from Statistics Canada
• L is the total population of Canada, as determined using annual population estimates from Statistics Canada

4.2.5 For the purposes of the formula in section 4.2.4, the population of Nunavut for each fiscal year and the total population of all provinces and territories for that fiscal year are the respective populations as determined on the basis of the quarterly preliminary estimates of the respective populations on July 1 of that fiscal year released in September of that fiscal year by Statistics Canada.

4.3 Payment

4.3.1 Subject to Parliamentary approval of appropriations, Canada’s contribution will be paid in approximately equal semi-annual installments as follows.

4.3.2 In fiscal year 2021 to 2022, the first installment will be paid within 30 days after the signatures from both Parties are affixed to the agreement. The second installment will be paid on or about November 15.

4.3.3 Beginning in fiscal year 2022 to 2023, the first installment will be paid on or about June 15 of each fiscal year. The second installment will be paid on or about November 15 of each fiscal year.

4.3.4 The amount of the first installment will be an amount equal to 50% of the notional amount of Canada’s maximum contribution to Nunavut for the fiscal year, which will be calculated in the manner described in sections 4.2.4 and 4.2.5.

4.3.5 The amount of the second installment will be an amount equal to the balance of Canada’s contribution to Nunavut for the fiscal year based on the actual amount of the contribution determined under sections 4.2.4 and 4.2.5 for the fiscal year.

4.3.6 Canada will notify Nunavut at the beginning of the fiscal year of their notional amount. The notional amount will be based on the Statistics Canada quarterly preliminary population estimates on July 1 of the preceding fiscal year. Canada will notify Nunavut of the actual amount of the second installment in each fiscal year as determined under the formula set out in section 4.2.4 as soon as possible following the release in September of each year of the Statistics Canada quarterly preliminary population estimates referred to in section 4.2.5.

4.3.7 Starting in fiscal year 2022 to 2023, Canada shall withhold payment of its first installment for each fiscal year if Nunavut has failed to provide its annual action plan in respect of that fiscal year in accordance with section 5.1.3 until such time as the annual action plan is provided.

4.3.8 In fiscal year 2021 to 2022, Canada shall withhold payment of its second installment for that fiscal year until Nunavut provides its annual audited financial statement of the last fiscal year covered by the agreement signed in 2020 in accordance with section 5.2.1 (d) of that agreement.

4.3.9 Beginning in fiscal year 2022 to 2023, Canada shall withhold payment of its second installment for the fiscal year if Nunavut has failed to provide its annual audited financial statement for the previous fiscal year in accordance with section 5.2.1 (d) until such time as the annual audited statement is provided.

4.3.10 The sum of both semi-annual installments of Canada’s funding for a fiscal year constitutes a final payment for that fiscal year and is not subject to any further adjustment once the second installment of that fiscal year has been paid.

4.3.11 Payment of Canada’s funding for each fiscal year of this agreement is subject to an annual appropriation by the Parliament of Canada for this purpose.

4.4 Maximum annual contribution in respect of administration costs

4.4.1 Canada’s contribution in respect of Nunavut’s administration costs referred to in section 2.2.3 and section 2.3 of annex 3 shall not exceed:

• in the fiscal years covered under this agreement an amount of up to or equal to 10% of the maximum amount payable for those fiscal years

4.5 Carry forward

4.5.1 At the request of Nunavut, and subject to the approval of Canada’s Treasury Board, Nunavut may retain and carry forward to the following fiscal year any unexpended funds remaining from Nunavut’s annual contribution paid under section 4.2., up to a maximum of 10% of the contribution paid. Any unexpended funds in excess of 10% of the contribution paid represents an overpayment subject to section 4.6.

4.5 2 Nunavut may only use the amount carried forward to the following fiscal year for expenditures on eligible areas of investment made under section 2.2 incurred that fiscal year.

4.5.3 For greater certainty, any unexpended funds remaining from Nunavut’s annual contribution paid under section 4.2., up to a maximum of 10% of the contribution paid to Nunavut in the last year of the agreement signed in 2020, is eligible for carry forward to the first year of this agreement.

4.5.4 For greater certainty, any amount carried forward under section 4.5.1 is supplementary to the maximum amount payable to Nunavut under section 4.2.3 of this agreement during the fiscal year in which the funding is carried forward.

4.5.5 All amounts carried forward to the next fiscal year, pursuant to section 4.5.1 must be spent by the end of that fiscal year. Nunavut is not entitled to retain any such carried forward amounts that remain unexpended after the end of that fiscal year, nor is it entitled to retain any balance of Canada’s contribution paid pursuant to section 4.2 that remains unexpended at the end of that fiscal year and that is not carried forward in accordance with section 4.5.1. Such amounts are considered debts due to Canada and shall be repaid in accordance with section 4.6.

4.6 Repayment of overpayment

4.6.1 In the event payments made to Nunavut exceed the amount to which Nunavut is entitled under the agreement, the amount of the excess is a debt due to Canada and shall be repaid to Canada upon receipt of notice to do so and within the period specified in the notice.

4.6.2 Canada shall, in addition to any other remedies available, have the right to recover the debt by deducting or setting-off the amount of the debt from any future contribution payable to Nunavut under this agreement.

4.7 Use of funds

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

5.1 Action plan

5.1.1 Nunavut has completed and shared its action plan for fiscal year 2021 to 2022 with Canada as set out in annex 2 of this agreement. Upon signature of this agreement by both Parties, Nunavut will publicly release their action plan which:

1. identifies specific priority areas for investment and objectives, within the Framework’s parameters, which builds upon the progress to date, including maintaining and building on the more affordable spaces created under the 2017 to 2021 agreement, and further enhancing the quality, accessibility, affordability, flexibility and/or inclusivity of their early learning and child care system, with consideration for those more in need
2. describes how Nunavut plans to address the early learning and child care needs of its children/families more in need, as described in section 2.2.5
3. outlines Nunavut’s planned innovation spending
4. demonstrates and confirms that federal investments will be incremental, and will not displace existing Nunavut early learning and child care spending, in particular spending dedicated to Indigenous populations
5. outlines the indicators that will be reported on annually according to their planned investments
6. identifies specific targets for each indicator that will be reported on annually for tracking progress in relation to the objectives of the agreement
7. identifies additional jurisdiction-specific indicators for tracking progress in relation to the objectives of the agreement
8. contains a description of consultation processes referred to in section 5.1.2, including the type of groups consulted and annual priorities related to stakeholder feedback

5.1.2 Nunavut will consult with parents, child care providers, experts, Indigenous peoples, official language minority communities and other interested Canadians as an important step in developing and revising its action plan.

5.1.3 By May 1 of each fiscal year during the period of this agreement, starting in fiscal year 2022 to 2023, Nunavut agrees to share with Canada an annual action plan. The annual action plan shall include the elements described in section 5.1.1 a) through h). Once the Parties agree that the annual action plan is final, it may be published by one or both of the Parties.

5.2 Reporting

5.2.1 By no later than October 1 of each fiscal year during the period of this agreement, Nunavut agrees to:

1. report to the people of Nunavut and to Canada on the results and expenditures of early learning and child care programs and services. The report shall include the number of children benefitting from subsidies, number of licensed early learning and child care spaces broken down by age of child and type of setting. The report shall show separately the results attributable to the funding provided by Canada under this agreement
2. continue to provide to Canada data required for the publication of the joint Federal-Provincial/Territorial Report on Public Investments in Early Childhood Education and Care in Canada
3. provide to Canada an annual report in the format and manner decided jointly by Canada and Nunavut. The report shall show separately the results attributable to the funding provided by Canada under this agreement and shall include:
   1. brief descriptions of the activities, expenditures and results of the agreement as set out in annex 2
   2. results achieved according to the indicators and targets referred to in annex 2
   3. the impacts on families more in need, including families that have limited access to programs and services in their official language referred to in annex 2
   4. results achieved on innovation referred to in annex 2
   5. descriptions of consultation processes, the type of groups consulted and annual priorities related to stakeholder feedback referred to in annex 2
   6. any additional results of evaluation activities undertaken in the fiscal year, as available
4. provide to Canada an audited financial statement of revenues received from Canada under this agreement during the fiscal year which shall include:
   1. the revenue section of the statement shall show the amount received from Canada under this agreement during the fiscal year
   2. the total amount of funding used for early learning and child care programs and services under section 2.2
   3. the administration costs incurred by Nunavut in developing and administering early learning and child care programs under section 2.2.3
   4. if applicable, the amount of any amount carried forward by Nunavut under section 4.5
   5. if applicable, the amount of any surplus funds that are to be repaid to Canada under section 4.6
5. The financial statement shall be prepared in accordance with Canadian Generally Accepted Accounting Principles and the audit shall be performed by the Nunavut Auditor General or his/her delegate, or by an independent public accounting firm registered under the laws of Nunavut and shall be conducted in accordance with Canadian Generally Accepted Auditing Standards.

5.2.2 Canada, with prior notice to Nunavut, may incorporate all or any part or parts of the said report into any public report that Canada may prepare for its own purposes, including any reports to the Parliament of Canada or reports that may be made public.

5.3 Audit

5.3.1 Nunavut will ensure that expenditure information presented in the annual report is, in accordance with Nunavut’s standard accounting practices, complete and accurate.

5.4 Evaluation

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

9.2 Waiver

9.2.1 Failure by any Party to exercise any of its rights, powers, or remedies under this agreement or its delay to do so does not constitute a waiver of those rights, powers, or remedies. Any waiver by either Party of any of its rights, powers, or remedies under this agreement must be in writing; and, such a waiver does not constitute a continuing waiver unless it is so explicitly stated.

Multilateral and Indigenous Early Learning and Child Care Framework

Early learning and childcare (ELCC) is a common policy priority all across Canada. In fiscal year 2017 to 2018, the Federal Government committed to supporting greater resources in this area and allocated $400 million to support the establishment of the Multilateral and Indigenous ELCC Frameworks with provinces and territories. Additionally, the 2017 federal budget committed $7 billion, over 10 years, starting in fiscal year 2018 to 2019. A portion of this investment is dedicated to early learning and childcare programs for Indigenous children.

In the spirit of greater collaboration, on June 12, 2017, Federal, Provincial and Territorial Ministers Most Responsible for ELCC met and signed a historic agreement on a Multilateral ELCC Framework to make enhancements to provincial and territorial early learning and childcare systems that will improve the lives of Canadian children and their families. The Framework sets the foundation for governments to work towards a shared long-term vision where all children across Canada can experience the enriching environment of quality early learning and childcare. Canada and the Assembly of First Nations, Inuit Tapiriit Kanatami, the Métis National Council jointly released the co-developed Indigenous ELCC Framework in September 2018, which establishes overarching principles and sets a vision for happy and safe Indigenous children and families, strong cultural identity, and a comprehensive and coordinated system that is anchored in self-determination and centered on children and grounded in culture, and can be used as a guide for all actors involved in Indigenous ELCC.

In addition to this long-term vision, the Multilateral and Indigenous ELCC Frameworks stress the importance of supporting families more in need to access high quality early learning and childcare opportunities. Given the importance of supporting families more in need, the provinces and territories have agreed, through the Framework, to emphasize supports to Indigenous families, lone-parent families, lower-income families, families in underserved communities, those working non-standard hours and/or families with children with varying abilities.

In line with the vision of access for all children, the Multilateral and Indigenous ELCC Frameworks establish broad principles for ELCC systems that are of high quality, accessible, flexible, affordable and inclusive. The Government of Nunavut (GN), through the Department of Education, agrees with these goals and is committed to working towards fulfillment of these goals. This revised ELCC action plan articulates how the Department of Education will work towards achieving the goals mentioned above and allocate the resources received from the Federal Government in support of ELCC programs and services consistent with the Multilateral and Indigenous ELCC Frameworks.

It should be noted that as a condition of the Multilateral ELCC Framework, any funding received from the Federal Government in support of this initiative must be allocated towards children, under age 6, attending regulated ELCC programs. Additionally, investments must be for the purpose of supporting those families more in need, Indigenous families and families in underserved communities with a view to ensuring that ELCC systems follow the principles of the Framework. The Framework also encourages provinces and territories to find innovative solutions to achieving these goals.

Benefits of ELCC

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

The Department of Education also acknowledges the role that ELCC plays in terms of reducing barriers to greater labour force participation. Simply put, parents need access to safe, reliable, affordable childcare options so that they may pursue education, training and employment opportunities.

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

• promote the social, emotional and cognitive development of the child
• increase school readiness and educational attainment
• enhance the use of Inuktut
• improve health outcomes and overall well-being
• support increased labour force participation

ELCC in Nunavut: Challenges and opportunities

The impact of Nunavut’s remoteness on the delivery of ELCC programs and services is such that the cost of establishing, operating and maintaining ELCC centres is staggeringly high. Individuals and not-for-profit organizations across Nunavut seek licenses to operate regulated ELCC centres, but high capital costs, ongoing maintenance, and other operational difficulties often result in centres opening, just to close in a few years resulting in inconsistent services for many communities. In addition to these high costs, developing and maintaining infrastructure is often extremely challenging because of an insufficient supply of building materials and contractors given that all supplies must be flown into communities. The high cost of operating ELCC programs, coupled with a very large, young population, places a considerable burden on Nunavut’s ELCC system.

Challenges related to training, recruitment and retention of qualified ELCC staff is seen across Nunavut. Very few ELCC educators have any type of formal early childhood educators (ECE) training which reduces the desire to work within the field. Many centres hire staff who are willing to work for low wages, but due to lack of training and competitive wages, many chose to leave the field within a short time. This creates a revolving door of ELCC educators which decreases the ability to keep centres open to full capacity and provide high quality childcare. Competitive wages are needed to recruit and retain interested people to work within the ELCC sector. Enhanced training and understanding of children’s needs, programming and day to day operations of a high-quality childcare system is also highly needed. Providing specialized training to support the growth of understanding and services provided to children and competitive wages is key to the growth and stability of ELCC in Nunavut.

System gaps in ELCC programs in Nunavut persist due to challenges compounded by the remote nature of all of Nunavut’s communities and the increasingly high cost of services. ELCC programs and centres face increasing operations and maintenance costs along with the need for competitive wages results in regular increases to parental fees in order to remain operational. Simply providing a minimal fee subsidies would do little to address the pervasive system gaps and would not allow the flexibility for ELCC programs to increase their ability to provide quality programs.

Increasing parent fees remain an issue within Nunavut, as they continue to affect the accessibility of many centres. Data was collected in 2006, 2012, and 2016 regarding parental fees. In 2006, the average parental fee per child a day was $26.50 with the highest fee reaching $43.00. In 2014, the average parental fee per child a day was $33.15 with the highest fee reaching $58.00. This amount has increased further, with the average parental fee per child costing a total of $42.58 for full time infant space and $21.46 for preschool space per day and the highest fee now reaching $65.00. Initiatives that can bend the increasing cost curve of fees for parents will improve accessibility to ELCC programs for more children.

ELCC centres in Nunavut face increasing financial challenges and have little to no capacity to generate revenue without increasing parental fees. This financial challenge often results in system gaps and can adversely affect the quality of services provided. Supporting ELCC centres to bridge the gap which exists between the amount of funding and revenue they generate and the cost of running their programs will ensure the viability of the ELCC centres and improve the quality of ELCC programs. Doing so will help ELCC centres deliver affordable, high quality, and more consistent programs and services to families with children enrolled in their centre. Furthermore, this would also provide ELCC centres with increased flexibility to respond to the unique needs of the communities they serve.

Section A: Specific priority areas for investment and objectives, within the Framework’s parameters, with consideration for those more in need

From the results of the Department of Education’s consultations, and consistent with the Multilateral and Indigenous ELCC Framework, 5 broad ELCC commitments have been identified in this action plan that will address gaps in the ELCC system and increase the flexibility of ELCC programs to provide consistent and more accessible services that meet the needs of the communities they serve. These 5 commitments are as follows.

Section B: Describes how Nunavut plans to address the early learning and childcare needs of its families more in need

A case could be made that Nunavut, with the youngest population in the country, has some of the greatest need for increased funding in the area of ELCC. According to the Nunavut Bureau of Statistics, Nunavut’s total population in 2016 was 37,082 of which, 31,234 or 84.2% identified as being Inuit. In that same year, children aged 0 to 4 accounted for just over 11% of Nunavut’s total population, the largest age cohort in the territory. Further still, in 2016, children aged 5 to 9 represented just under 11% of Nunavut’s total population. Overall, children aged 0 to 14 accounted for close to 31% of Nunavut’s population in 2016 where the Canadian average for this age cohort was 16.1%. Moreover, Nunavut’s fertility rate in 2016 was 2.99 according to Statistics Canada, close to double that of the Canadian average which was 1.54.

Educational attainment is often considered a significant predictor of employment and as a result, linked to economic prosperity. Where it concerns educational attainment, the Nunavut Bureau of Statistics reports Nunavut’s 2017 graduation rate at 47.7%, which is below the national average. As per Statistics Canada, in 2018 nearly 58% of Canadians aged 25 to 64 have completed some form of post-secondary education compared with just over 34% for Nunavut.

In terms of economic indicators, according to Statistics Canada, Nunavut’s median total income by family was the lowest in the country in 2017 at $74,450. The Canadian average for that same year was $84,950. Further still, the Nunavut Bureau of Statistics reports that some 14,488 Nunavummiut received income assistance in 2018, which represented 49.7% of the population at that time.

Nunavut is the only Canadian province or territory not accessible by road at any point in the year. All 25 of Nunavut’s communities are fly-in accessible only. This lack of access and considerable degree of remoteness and reliant on airline cargo and flights has significant logistical and financial implications on numerous aspects of life in Nunavut. From everyday necessities such as food to building supplies and the recruitment of specialized staff, much of what is needed in Nunavut must be flown in from southern Canada and this drives up costs considerably. For instance, in its 2016 Nunavut Food Price Survey, the Nunavut Bureau of Statistics reported that the cost of food in Nunavut is roughly twice as high as the Canadian average.

Sharing knowledge and information is further impeded in Nunavut by poor telecommunications infrastructure which limits the ability to take advantage of technology that would permit the use of video conferencing and webinars when endeavoring to provide training and in-servicing. Such training and in-servicing activities are once again only possible through air travel which is costly.

The result of Nunavut’s remoteness on the delivery of ELCC programs and services is such that the cost of establishing, operating and maintaining ELCC centres is staggeringly high. In addition to these high costs, developing and maintaining infrastructure is often extremely challenging because of an insufficient supply of building materials and contractors. The high cost of operating ELCC programs, coupled with a very large, young population, places a considerable burden on Nunavut’s ELCC system. It is for these reasons that investments in this area are needed.

Given Nunavut’s unique circumstances and context, as presented above, the Government of Nunavut’s Department of Education is of the opinion that all of Nunavut is “more in need” when it comes to accessing high quality ELCC programs and services. Because the vast majority of Nunavummiut are indigenous, minority language speakers (in the context of Canada) and non-affluent, the actions and investments outlined in this action plan do not target specific groups within Nunavut’s population. Rather, Nunavut’s action plan focuses on ensuring an equitable distribution of high quality, accessible, affordable, flexible and inclusive ELCC programs in all of Nunavut’s communities, with emphasis on those communities where no operational ELCC program currently exists. The actions constituting Nunavut’s action plan were developed through this lens.

Section C: Outlines their planned innovation spending

Recalling the information provided in Section B, Nunavut has endeavored to find innovative approaches to investing in ELCC through the funding made available in support of the Framework.

Access to training and professional development opportunities for ELCC staff is quite limited within Nunavut. Because of Nunavut’s remoteness, Nunavut Arctic College (NAC) is the sole provider of early childhood educator training; however, programming offered through NAC is not available in all communities nor on a regular basis. While distance education opportunities may exist in this program area, significant bandwidth limitations mean that such opportunities are generally not available to educators in Nunavut. Because of the constraints found in Nunavut, notably in relation to the issues of remoteness and communication infrastructure needs discussed above, the Department of Education believes that a variety of community based or regional ELCC training and professional development sessions is an innovative approach to delivering training and professional development opportunities to ELCC centre staff in all communities.

Where it concerns the retention and creation of childcare spaces, opening new ELCC centres and keeping centres operating is a challenging endeavor in Nunavut. This is the case because all ELCC centres are run by not-for-profit societies which require members of the public to volunteer their time to serve on the board of the society. Such board positions are not easily filled as the members of the public with interest and knowledge to serve in this capacity are often overtaxed by serving on numerous boards within the community setting. Given this, societies often struggle to fill their board seats or address the high turnover of board members.

Compounding this issue is the tremendous challenge of developing suitable infrastructure in Nunavut. In addition to the cost associated with such projects, which is several times higher than that found in southern Canada, other logistical barriers exist such as an insufficient supply of contractors and building materials. Also, as discussed elsewhere in this action plan, Nunavut’s allocated ELCC bilateral funding would barely put a dent in the cost of creating additional childcare spaces through the development of new ELCC centres, in new facilities.

In an effort to find an innovative solution to creating additional childcare spaces in Nunavut, the Department has identified an opportunity to help support those ELCC centres that are no longer operational and to re-open them to create additional childcare spaces in underserved communities as well as support centres who are high risk of closing and decreasing the number of childcare spaces. Such centres often close because of financial mismanagement and may not be able to keep their doors open to children without significant funding support.

The Department believes that these at-risk centres, as well as centres who have previously closed, are well positioned to re-open because they may have several of the necessary supports and requirements already in place, such as a building in which to operate, a board to administer the centre and a client base. Creating additional and securing current childcare spaces using existing facilities presents significant time and cost savings. As such, the Department of Education believes that supporting closed centres is an innovative approach to making the most effective use of the resources available in an otherwise resource scarce area, for the sake of creating greater access to ELCC.

Section D: Demonstrates that federal investments will be incremental and will not displace existing territorial early learning and childcare spending, in particular spending dedicated to Indigenous populations

Education is a top priority of the GN. As articulated in Turaaqtavut, the GN is committed to providing education and training that prepares children, youth and adults for positive contributions to society and for meaningful employment through Sivummuaqpalliajjutivut. Turaaqtavut is the name of the mandate document that was adopted in February 2018 to guide the Government of Nunavut’s work. One of the 5 main priorities identified in Turaaqtavut is Sivummuaqpalliajjutivut, we will provide education and training that prepares children, youth and adults for positive contributions to society and for meaningful employment.The GN is equally committed to supporting the delivery of educational programming which is consistent with the principles of Inuit Qaujimajatuqangit (IQ) and supports the promotion and use of all of Nunavut’s official languages.

The Government of Nunavut, through the Department of Education, is committed to maintaining this current level of investment and all funding received from the Government of Canada in support of the Multilateral and Indigenous ELCC Frameworks will be supplemental to that which is already allocated towards ELCC in Nunavut.

Section E: Identifies specific targets for each indicator that will be reported on annually for tracking progress in relation to the objectives of the agreement

As funding will be provided to 100% of eligible centres (regulated childcare centres), as many as 53 licensed regulated ELCC centres and the parents of as many as 1,088 children stand to benefit from the funding associated with the operations and maintenance top-up funding in each year of the action plan.

Through the funding associated with the child care space retention/creation in underserved communities action, the Department is targeting centres at risk or have the ability to reopen thus maintaining/increasing the total number of childcare spaces in the territory by as many as 20 in each year of the action plan.

In terms of the ELCC training and professional development sessions, the Department is targeting the participation of 80% (or 53 licensed regulated ELCC centres) of all centres. This would translate into reaching 240 ELCC staff directly and a further 61 staff indirectly, through the sharing of lessons learned and best practices. 1,088 children stand to benefit as a result of this action based on the participation rate identified above.

Federal funding will also be directed towards the operational expenses of programs to further support and retain Early Childhood Educators. The Department is targeting support to 100% of ELCC educators in 53 licensed regulated of childcare centres, thus 301 of staff stand to benefit from this action.

Where it concerns the development of educational programming resources and providing training, the Department is developing culturally and linguistically appropriate resources. The Department is targeting the provision of training on the developed resource to 80% of ELCC centres thus, 53 licensed regulated childcare centres, 301 staff and 1,088 children stand to benefit from this action.

Section F: Identifies additional jurisdiction-specific indicators for tracking progress in relation to the objectives of the agreement

The development of a data base will allow for growth in the ability for tracking progress and future initiatives to support the growth of ELCC in Nunavut.

Section G: A description of consultation processes, the type of groups consulted and annual priorities related to stakeholder feedback

In 2017, the Department of Education identified the need to consult with a range of partners and stakeholders to capture unique perspectives on ELCC in Nunavut to develop an ELCC action plan.

The partner and stakeholder organizations consulted included:

• ELCC centres from each of the regional hubs of Cambridge Bay, Rankin Inlet and Iqaluit
• non-governmental organizations such as Nunavut Tunngavik Incorporated (NTI), the Regional Inuit Associations (RIAs), the Coalition of Nunavut District Education Authorities (DEAs), the Office of the Representative for Children and Youth and the Language Commissioner’s office
• Government of Nunavut officials from the Departments of Education, Justice, Health and Family Services

Representatives from each of the organizations identified above were invited to take part in regional consultation sessions or interviews. Face-to-face sessions were held in Iqaluit and Rankin Inlet and interviews were conducted by telephone in Cambridge Bay.

Consultations focused on the identification of ELCC priorities, areas of need and investment opportunities in support of the identified priorities and areas of need.

Early childhood workforce funding for fiscal year 2021 to 2022

Whereas, Canada and Nunavut agree that the early childhood workforce is integral to providing high-quality ELCC.

Whereas, the Multilateral ELCC Framework is based on 5 key principles, one of which is ensuring ELCC systems are of high quality.

Whereas, the Multilateral ELCC Framework recognizes the importance of qualifications and training for the early childhood workforce as part of a high quality ELCC system.

Now therefore, the Parties agree as follows.

1.0 Purpose

1.1 Canada and Nunavut agree that for fiscal year 2021 to 2022 only, a one-time financial support from Canada to Nunavut will be used support the recruitment and retention of the early childhood workforce.

2.0 Area of focus

2.1 Nunavut agrees to utilize funding in licensed/regulated settings to support the attraction and retention of a qualified workforce, including through training, professional development, wages, bursary programs, tuition support and grants.

2.2 For greater clarity, activities that may support the objective of attracting and retaining a qualified workforce include but are not limited to: providing employment and training supports, lowering the cost of education for those seeking their early childhood educator degree/certificate, supporting the workforce in providing quality ELCC, and improving the ability to provide support to families more in need, including lower-income families; Indigenous families; lone-parent families; families with children with disabilities and children needing enhanced or individual supports; Black and racialized children; families from Official Language Minority Communities; families in underserved communities; and/or those working non-standard hours. Needs also include having limited or no access to programs and services in the children's official language.

2.3 Nunavut may use up to 10% of its workforce funding allocation towards administration costs.

3.0 Financial provisions

3.1 In fiscal year 2021 to 2022, to be paid concurrently with the contribution provided under section 4.2. of the agreement, Canada has designated the following maximum amount to be transferred in total to all provinces and territories under this initiative with a fixed base rate of $2 million per year for each province and territory, and the balance of the funding on a per child (0 to 12) basis:

1. $420,000,000 for the fiscal year beginning on April 1, 2021

3.2 The final amount to be paid to Nunavut is determined by the formula, F x K/L, where:

• F is the total funding amount transferred to provinces and territories minus the base funding
• K is the population of children aged 0 to 12 in Nunavut in fiscal year 2021 to 2022, as determined using population estimates from Statistics Canada
• L is the total population of children aged 0 to 12 in Canada in fiscal year 2021 to 2022, as determined using population estimates from Statistics Canada

3.3 Subject to adjustment based on the formula described in section 3.2 of this annex, Nunavut’s estimated share of the amount described in section 3.1 (a) of this annex will be:

For the purposes of the formula in section 3.2 of this annex, the population of children aged 0 to 12 in Nunavut for the fiscal year 2021 to 2022 and the population of children aged 0 to 12 in all provinces and territories for that fiscal year are the respective populations as determined on the basis of the preliminary estimates of the respective populations on July 1st of that fiscal year. These estimates are released by Statistics Canada in September of each fiscal year.

3.4 Sections 4.5.1 to 4.5.5 of the agreement, respecting carry forward, apply to funds provided under this annex.

4.0 Accountability