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

2.1. Objectives

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

1. supporting the delivery of high quality early learning and child care experiences. One of the most significant elements affecting a child's early development, after the home environment and relationship with parents, is the provision of high quality early learning and child care. Quality early childhood education and care programs positively impact children's healthy development; allow for parents to return to the workforce who would not otherwise be able to work; and reduce social, special education and health care costs. Many of the actions within this 4-year ELCC Bilateral Agreement and the Northwest Territories action plan focus on fostering the development of high quality, culturally-relevant, early learning and child care environments
2. supporting culturally-relevant professional development and training for all staff working within licensed early childhood programs. Well-trained early childhood staff are able to provide developmentally appropriate programming and care that respects diversity and values all children and families. The Government of the Northwest Territories currently provides professional development and training support for staff working in licensed programs. This is a current area of focus for the Department of Education, Culture and Employment. There is a greater need for more focused and regular professional development and training opportunities offered by the Department of Education, Culture and Employment. Through this Bilateral Agreement the Government of the Northwest Territories will further support professional development and training opportunities for staff working within licensed early childhood programs and will include innovative methods, such as the use of technology and focused on-the-job training, to compensate for the high costs associated with travel between northern communities. This will also assist with participation of staff living in small communities, as it may be difficult for staff to leave their community to attend training without closing their program
3. increasing the number of qualified early childhood development professionals in licensed programs. High quality early childhood programs require well-trained and knowledgeable educators. Capacity in the early childhood development workforce varies widely. Some early childhood development staff have a 1-year early childhood development certificate, with many having no post-secondary education whatsoever. This ELCC Bilateral Agreement supports actions that will assist with expanding initiatives, such as scholarships for students currently enrolled in a post-secondary program in early childhood development and supporting Aurora College to expand and redesign their diploma program in early childhood development for residents of the Northwest Territories
4. supporting access to early learning and child care opportunities within all communities in the Northwest Territories. The territorial implementation of junior kindergarten during the 2017 to 2018 school year provides all parents of 4 year old children with an option to access high quality early learning program. Research shows that high quality early learning and child care programs positively impact children's development and that these programs make the most difference for vulnerable children. Recognizing these benefits and the need to ensure all communities in the Northwest Territories can equitably benefit from high quality early learning and child care that meets the needs of their community, the Department of Education, Culture and Employment is committed to supporting access to early learning and child care opportunities, with a particular focus on supporting programs that provide afterschool care for 4 and 5 year old children, licensed early childhood programs that offer care for children from birth to 3 years old, as well as supporting the development of programs within communities that currently do not have access to licensed early childhood programs

The Northwest Territories' policy towards early learning and child care and approach to achieving these objectives is set out in their action plan attached as Annex 2.

2.1.2. Canada and the Northwest Territories agree that for fiscal year 2021 to 2022 only, Canada will provide a one-time contribution to the Northwest Territories 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. The Northwest Territories agrees to prioritize funds provided by Canada under this Agreement in regulated early learning and child care programs and services for children under the age of 6 where:

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

2.2.2. In developing and delivering its early learning and child care programs and services, the Northwest Territories agrees to take into account the needs of official language minority communities in the Northwest Territories, as "official language" is understood under Canada's Official Languages Act.

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
• certain administration costs incurred by the Northwest Territories in implementing and administering this agreement

2.2.4. Canada and the Northwest Territories 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 the Northwest Territories 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
• 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, as "official language" is understood under Canada's Official Languages Act

2.2.6. In fiscal year 2021 to 2022, given the extraordinary circumstances of COVID-19, the Northwest Territories may allocate funding under this agreement to support short-term measures to minimize the impacts of COVID-19 on the Northwest Territories' 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 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 the Northwest Territories and Canada the opportunity to review and course correct, if required, and realign new priorities in future bilateral agreements based on progress made to date.

3.2.3. In the event this bilateral agreement is extended in accordance with the terms of section 3.2.1 and section 9, the Northwest Territories may continue to use funding provided thereunder to cover the same eligible areas of investment as those covered through funding received for the period 2021 to 2025 subject to the terms and conditions of that extended agreement.

4.2. Allocation to the Northwest Territories

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

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

4.2.2. Subject to annual adjustment based on the formula described in section 4.2.3, the Northwest Territories' estimated share of the amounts described in section 4.2.1 will be as follows.

*Amount represents annual estimates based on Statistics Canada population estimates

4.2.3. The final yearly amount to be paid to the Northwest Territories 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 the Northwest Territories, as determined using annual population estimates from Statistics Canada
• L is the total population of Canada, as determined using annual population estimates from Statistics Canada

4.2.4. For the purposes of the formula in section 4.2.3, the population of the Northwest Territories 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. 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. 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.

4.4.3. 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.

4.4.4. The amount of the first installment will be an amount equal to 50% of the notional amount of Canada's maximum contribution to the Northwest Territories for the fiscal year, which will be calculated in the manner described in sections 4.2.3 and 4.2.4.

4.4.5. The amount of the second installment will be an amount equal to the balance of Canada's contribution to the Northwest Territories for the fiscal year based on the actual amount of the contribution determined under sections 4.2.3 and 4.2.4 for the fiscal year.

4.4.6. Canada will notify the Northwest Territories 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 the Northwest Territories of the actual amount of the second installment in each fiscal year as determined under the formula set out in section 4.2.3 as soon as possible following the release in September of each year of the Statistics Canada quarterly preliminary population estimates referred to in section 4.2.4.

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

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

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

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

4.4.11. Payment of Canada's funding for each fiscal year of this Agreement is subject to an annual appropriation by the Parliament of Canada for this purpose. Likewise, use of the funding by the Northwest Territories is subject to an annual appropriation by the Northwest Territories Legislature.

4.5. Maximum annual contribution in respect of administration costs

4.5.1. Canada's contribution in respect of the Northwest Territories' administration costs referred to in section 2.2.3 and section 2.3 of Annex 3 shall not exceed the following.

• In the fiscal years covered under this Agreement an amount up to 10% of the maximum amount payable for those fiscal years

4.6. Carry forward

4.6.1. At the request of the Northwest Territories, and subject to the approval of Canada's Treasury Board, the Northwest Territories may retain and carry forward to fiscal year 2022 to 2023 any unexpended funds remaining from the Northwest Territories annual contribution paid under section 4.2, up to a maximum of 15% of the contribution paid. Any unexpended funds in excess of 15% of the contribution paid represents an overpayment subject to section 4.7.

4.6.2. At the request of the Northwest Territories, and subject to the approval of Canada's Treasury Board, the Northwest Territories may retain and carry forward to fiscal year 2023 to 2024 or fiscal year 2024 to 2025 any unexpended funds remaining from the annual contribution payable to the Northwest Territories under section 4.2.3, 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.

4.6.3. The Northwest Territories 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.

4.6.4. For greater certainty, any unexpended funds remaining from the Northwest Territories annual contribution paid under section 4.2, up to a maximum of 15% of the contribution paid to the Northwest Territories in the last year of the Agreement signed in 2021, is eligible for carry forward to the first year of this Agreement.

4.6.5. For greater certainty, any amount carried forward under section 4.6.1 and 4.6.2 is supplementary to the maximum amount payable to the Northwest Territories 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 section 4.6.1 or 4.6.2 must be spent by the end of that fiscal year. The Northwest Territories 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 4.6.1 or 4.6.2. 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 the Northwest Territories exceed the amount to which the Northwest Territories is entitled under the Agreement, the amount of the excess is a debt due to Canada and shall be repaid to Canada upon receipt of notice to do so and within the period specified in the notice.

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

4.8. Use of funds

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

5.1. Action plan

5.1.1 The Northwest Territories has completed and shared its action plan for the year 2021 to 2022 with Canada as set out in Annex 2 of this Agreement. Upon signature of this Agreement by both Parties, the Northwest Territories 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 increased access 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 the Northwest Territories 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 their planned innovation spending
4. demonstrates and confirms that federal investments will be incremental, and will not displace existing Northwest Territories 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. 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. The Northwest Territories 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, the Northwest Territories agrees to share with Canada an annual action plan. The annual action plan shall include the elements described in section 5.1.1 a) to h). Once the Parties agree that the annual action plan is final, it may be published by one or both of the Parties.

5.2. Reporting

5.2.1. By no later than October 1 of each fiscal year during the period of this Agreement, the Northwest Territories agrees to:

1. report to the people of the Northwest Territories 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 benefiting 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 the Northwest Territories. The report shall show separately the results attributable to the funding provided by Canada under this Agreement and shall include:
   1. brief description 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 impact on families more in need, as described in section 2.2.5
   4. results achieved on innovation referred to in Annex 2
   5. description 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:
   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 the Northwest Territories in developing and administering ELCC programs under section 2.2.3
   4. if applicable, the amount of any amount carried forward by the Northwest Territories 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 Northwest Territories Auditor General or his/her delegate, or by an independent public accounting firm registered under the laws of the Northwest Territories and shall be conducted in accordance with Canadian Generally Accepted Auditing Standards.

5.2.2. Canada, with prior notice to the Northwest Territories, 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. The Northwest Territories will ensure that expenditure information presented in the annual report is, in accordance with the Northwest Territories' standard accounting practices, complete and accurate.

5.4. Evaluation

5.4.1. As per established policies and processes with respect to program effectiveness, the Northwest Territories 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.

Introduction

Due to the COVID-19 pandemic, the Northwest Territories (NWT) ability to deliver on the initiatives outlined in the fiscal year 2021 to 2022 action plan may be affected. As such, the targets may not be achieved and expenditures may differ.

The early years, from birth to age 5, are among the most critical for a child's development. These early years provide an essential opportunity to nurture and support the healthy, social, emotional, cognitive and physical development of young children. Research tells us that positive experiences in early childhood directly impact children's chances to lead healthy, successful and balanced lives. This entails a critical responsibility for the Government of the Northwest Territories (GNWT) to take action and support families and children in their early years. There is a collective benefit in investing and supporting young children and their families. The continued impact of the global coronavirus-19 pandemic has led to an increased need to financially support existing early learning and child care programs throughout the territory.

Supports provided now will benefit future generations in the NWT, as these young children will grow to become healthy, productive and contributing citizens that are able to share their skills, talents and services.

From small, fly-in communities, to larger regional centres, each of the 33 vibrant communities within the NWT has vastly differing early learning and child care needs. Home to 11 official languages, including Chipewyan, Cree, English, French, Gwich'in, Inuinnaqtun, Inuktitut, Inuvialuktun, North Slavey, South Slavey and Tlicho, the people of the NWT represent multiple cultural belief systems and values. Rather than a one-size-fits-all approach, fulfilling early learning and child care needs in the NWT is based upon meeting individual community needs. It then becomes important to develop a plan that is both flexible and grounded within a common vision of supporting families with children from birth to 5 years of age in all NWT communities with high quality early learning and child care that is accessible, affordable and inclusive.

The Department of Education, Culture and Employment (DECE) supports all communities in their endeavors to provide a variety of early learning and child care programming that best meets their unique situation. For some communities, this means full-time licensed early learning and child care programs that are centre-based or family day homes; for others, the best way to support families with young children may be a part-time drop-in program offered several times per week. This Early Learning and Child Care (ELCC) Bilateral Agreement (2021 to 2025) and action plan (fiscal year 2021 to 2022) recognizes the individual needs of each community and offers flexible options to assist in meeting the early learning and child care needs unique to each community. Improving the accessibility of licensed child care that is tailored to community needs provides young children and their families with options to access high quality early learning and care environments and allows parents and caregivers to feel supported and confident that their children are safe, happy and thriving.

Early learning and child care in the NWT: Indication of need

Positive early experiences have a huge impact on children's chances to lead healthy, successful and balanced lives. The early years provide the most critical opportunity to take action and prevent negative experiences and circumstances from impacting children for the rest of their lives while promoting opportunities for quality early learning experiences that promote healthy child development.

Consultation

While evidence and research play a key role in shaping the GNWT's actions, so too does the knowledge and insight of early childhood education stakeholders. The GNWT has engaged in public discussions on early childhood development, learning, and care through roundtable discussions, on-line surveys, webinars, home visits, regional meetings, focus groups, and sharing circles, parents, community members, Elders, early childhood professionals and other stakeholders have provided their thoughts and ideas for the future of childhood development in the NWT. Within the NWT context, stakeholders are always representative and include French and Indigenous participants.

Engagement with a wide range of people with an interest in early childhood development called upon the GNWT to create an integrated, sustainable, and affordable system of supports for young children and their parents. That system needs to be culturally sensitive and relevant, and delivered by a professional workforce of highly skilled and well-compensated early childhood staff. And finally, stakeholders advised that early childhood programs should focus particularly on meeting children's emotional and social needs.

In 2013, the Departments of Health and Social Services and the Department of Education, Culture and Employment released a joint 10-year Framework for Early Childhood Development: Right from the Start (RFTS Framework).It is based on a comprehensive community engagement process that included parents and caregivers, Elders, early childhood experts and northern leaders. While a number of actions were completed through implementation of the RFTS Framework, there continue to be areas identified within that foundational document that can inform future work to develop the early childhood sector in the NWT.

Most recently, DECE has met with Indigenous Governments and held engagement sessions with licensed early learning and child care program operators and early childhood educators throughout the NWT to discuss a series of questions about the development of a 2030 ELCC Strategy (Strategy). This 10-year Strategy will outline areas of focused investment and support for the advancement of the GNWT's 19th Legislative Assembly's Mandate for universal child care through increased affordability and availability of child care in the NWT. The discussions held with Indigenous Governments and stakeholders will be used to inform the development of the Strategy and actions identified within this action plan and subsequent action plans associated with this agreement.

Vision for future directions

The GNWT recognizes that all children in the NWT deserve the best possible care, nurturing and support right from the start so that they can develop physically, emotionally, socially and spiritually and grow up to become healthy and productive members of their communities and society.

The Multilateral Early Learning and Child Care Framework sets the foundation for governments to work toward a shared long-term vision where all children can experience the enriching environment of quality early learning and child care that supports children's development to reach their full potential. Guided by the principles set under the Multilateral Early Learning and Child Care Framework, this 4-year ELCC Bilateral Agreement and 1-year action plan shows a commitment toward investments to increase quality, accessibility, affordability, flexibility and inclusivity in early learning and child care, with consideration of those more in need. Additionally, the Multilateral Early Learning and Child Care Framework recognizes diversity and promotes early learning and child care systems that are respectful of language and culture, including the unique needs of French minority communities and Indigenous people.

Through this 4-year ELCC Bilateral Agreement and 1-year action plan, the GNWT has identified the following areas of priority. These are a largely a continuation of the areas of priority identified in the first 4 years of the ELCC Bilateral Agreement and build on the improvements made and lessons learned during that time. As the COVID-19 pandemic continues to impact how licensed early learning and child care programs operate, the NWT also recognizes the need for flexibility in responding to the evolving needs of existing early learning and child care programs:

1. support for the delivery of high-quality early learning and child care experiences. One of the most significant elements affecting a child's early development, after the home environment and relationship with parents, is the provision of high-quality early learning and child care. Quality early childhood education and care programs positively impact children's healthy development; allow for parents to return to the workforce who would not otherwise be able to work; and reduce social, education and health care costs. Many of the actions within this updated ELCC Bilateral Agreement and action plan focus on fostering the development of high quality, culturally relevant, early learning and child care environments.
2. support culturally relevant professional development and training for all staff working within licensed early childhood programs. Well-trained early childhood educators are able to provide developmentally appropriate programming and care that respects diversity and values all children and families. The GNWT currently provides professional development and training support for staff working in licensed programs. This is a current area of focus for the Department of Education, Culture and Employment. There is a greater need for more focused and regular professional development and training opportunities. Through this Bilateral Agreement, the GNWT will further support professional learning opportunities for staff working within licensed early learning and child care programs and will include innovative methods, such as the use of technology and focused on ongoing monitoring and supports for licensed program, to compensate for the high costs associated with travel between northern communities. This will also assist with participation of early childhood educators living in small communities, as it may be difficult for educators to leave their community to attend training without closing their program.
3. increase the number of qualified early childhood educators in licensed early learning and child care programs. High quality early childhood programs require well-trained and knowledgeable educators. Capacity in the early learning and child care workforce in the NWT varies widely. Some early childhood development staff have a 1-year early childhood development certificate, with many having no post-secondary education. This ELCC Bilateral Agreement supports actions that will assist with expanding initiatives, such as scholarships for students currently enrolled in a post-secondary program in early childhood development and supporting Aurora College to expand and redesign their diploma program in early learning and child care to offer part-time, distance learning opportunities for residents throughout the NWT.

4. support access to early learning and child care opportunities within all communities in the NWT, including specific supports for licensed programs during the COVID-19 pandemic. The territorial implementation of junior kindergarten (JK) during the 2017 to 2018 school year provides all parents of 4-year-old children with an option to access high quality early learning program. Research shows that high quality early learning and child care programs positively impact children's development and that these programs make the most difference for vulnerable children. Recognizing these benefits and the need to ensure all communities in the NWT can equitably benefit from high quality early learning and child care that meets the needs of their community. The Department of Education, Culture and Employment is committed to supporting access to early learning and child care opportunities for licensed programs that provide out-of-school care (before and after school care), licensed early learning and child care programs that offer care for children from birth to 5 years old, as well as supporting the development of programs within communities that currently do not have access to licensed early learning and child care programs.

   The pandemic response requires that licensed early learning and child care programs continue to implement enhanced cleaning regimens and utilize personal protective equipment (PPE) as required by the NWT's Office of the Chief Public Health Officer. Some licensed centre-based programs and family day homes have elected to hire professional cleaning services to ensure the safest environment possible for their staff, children and families. Through this agreement, funding may be provided to offset health and safety costs associated with operating during the pandemic.

ELCC action plan for the Northwest Territories

This action plan for this extension agreement will cover fiscal year 2021 to 2022 and builds upon the solid foundation set in the original fiscal year 2017 to 2018 to fiscal year 2019 to 2020 Agreement and the first extension in fiscal year 2020 to 2021. Funding provided under this Agreement is anticipated to complement the Canada-NWT Canada-Wide Early Learning and Child Care Agreement.

The 2016 Federal Budget committed $400 million in fiscal year 2017 to 2018 to support the establishment of the Multilateral Early Learning and Child Care (ELCC) Framework 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 was dedicated to improving access to culturally appropriate early learning and child care programs for all Indigenous children.

The Indigenous ELCC Framework represents the Government of Canada and Indigenous peoples' work to co-develop a transformative Indigenous framework that reflects the unique cultures, aspirations and priorities of First Nations, Inuit and Métis children across Canada. These bilateral agreements are between Canada and Indigenous Governments.

The notional allocation for the NWT over the first 4 years of the Canada-NWT ELCC Agreement was $9,804,018. Notional allocations may vary according to the latest annual population estimates. The territorial investment over the past 4 years was $35,176,675, the Federal amount invested was $9,033,119; thus, combined investment over 4 years was $44,209,794; which supported the early learning and child care sector.

Since the initial agreement was signed, the NWT has used the federal funding to support investments in early learning and child care in 2 main areas: improving quality and access to early learning and child care in the NWT. Particular consideration has been given for small communities, including those that are currently without any licensed early childhood programs. These areas of investment align with the principles of quality, accessibility, affordability, flexibility and inclusivity, as outlined within the Multilateral ELCC Framework. Indigenous children and Francophone communities were also supported through the ELCC Bilateral Agreement and action plan.

Due to the COVID-19 pandemic, the NWT's ability to deliver on the initiatives outlined in the fiscal year 2020 to 2021 action plan were affected. As such, some projects related to resource development, particularly where travel was and participation of licensed programs were required, and professional learning opportunities were deferred, and expenditures were lower than planned. A carryover amount from fiscal year 2020 to 2021 of $345,302.

With Budget 2021 announced in the Fall 2021, the Government of Canada identified an additional investment of $420 million for all provinces and territories to support workforce development. The notional amount for the 2021 to 2022 fiscal year is $2,443,643 for the extension to the ELCC Bilateral Agreement and the workforce development amount is $2.59 million for fiscal year 2021 to 2022. This is a one-time, 1-year amount. In total, the GNWT will receive $5.03 million in federal funding to support access to quality early learning and child care in the NWT. The territorial investment for fiscal year 2021 to 2022 is $9.978 million.

The following is a discussion for each of the activities under the areas of focus.

Area of focus: High quality

High quality early learning and child care programs are grounded in culturally sensitive and current evidence-based practices that positively impact a child's healthy development. Studies indicate that participation in high quality early childhood programs may be of particular benefit for children who are vulnerable and at-risk.

One way to foster high quality early learning and child care is to support the development of a qualified early childhood workforce. Through the Right from the Start Framework and subsequent action plans, the GNWT has committed to supporting the professional development of staff working within licensed centre-based early childhood programs, as well as promoting future workforce development by supporting students currently enrolled in early childhood programs.

Well-trained early childhood educators with the knowledge and skills necessary to deliver high quality programs, make a significant difference in the development of children in their care. The NWT is home to approximately 300 staff working within licensed early childhood programs. Many of the staff working within these licensed programs are from the local community, providing an invaluable connection, not only to the community, but also to its local culture and language.

Currently, a large proportion of staff working in licensed early learning and child care programs do not have formal post-secondary training in early childhood development. There are several challenges with pursuing post-secondary education when living and working in the NWT. Challenges of leaving the community, as well as with bandwidth issues when accessing distance studies, have historically been barriers to those wishing to seek post-secondary education opportunities.

The ELCC Bilateral Agreement and NWT action plan will assist the GNWT in supporting the development of a qualified workforce within the NWT by providing current staff working within licensed early childhood programs that are centre-based with training and professional learning opportunities, as well as supports to encourage Northerners to pursue post-secondary education in the field of early childhood development.

The GNWT proposes to improve quality in licensed early learning and child care programs through the following actions.

Area of focus: Access

As of July 29, 2021, the NWT has 122 licensed early childhood programs with a total of 1,079 potential child care spaces available for children from birth to 5 years old. An additional 925 out-of-school spaces provide afterschool care programs for children aged 4 to 11 years. This plan will support out of school spaces for 4 and 5 year-old children and the department will be able to report on the number of 4 and 5 year olds benefiting from this starting in the 2020 to 2021 fiscal year. However, since the introduction of junior kindergarten programs increased the need to expand the current out-of-school care program to include 4 year old children, some initiatives designed to benefit 4 and 5 year-olds may incidentally benefit older children.

NWT indicators

Summary of targets

Below are the targets for the key indicators related to planned investments. Targets for the rest of the indicators are under development, including leveraging existing data and developing new data collection needs:

• the investments related to professional learning will directly benefit as many as 300 staff working in licensed early learning and child care programs directly and indirectly benefitting 100% of children (as many as 2,004) participating in the licensed early childhood programming where those staff who participated in professional development and training work
• the cultural resources will be shared with all licensed centre-based programs in the NWT, with as many as 68 programs standing to benefit from this action. 100% of children (as many as 1,572) participating in NWT licensed centre-based early learning and child care programs stand to benefit from this action
• as many as 87 students stand to benefit from the full-time diploma deliveries in Yellowknife, resulting in the potential of hiring staff with post-secondary education in early childhood with credentials that allow them to work in licensed programs throughout the NWT
• potential opportunities for Francophone early childhood educators could result in 10 early childhood educators benefitting from post-secondary opportunities during the 2021 to 2022 fiscal year
• investments in the Early Childhood Scholarships initiative will result in a maximum of 20 scholarships awarded through the federal funding in fiscal year 2021 to 2022
• funding towards ensuring safe and healthy spaces in licensed early learning and child care programs will be based on demand and 100% of licensed programs that require these repairs and maintenance will receive funding for up to $10,000 per program. Additional funding could also be made available to meet evolving health and safety standards related to operating licensed early learning and child care programs. Up to 15 licensed early learning and child care programs serving 245 children could benefit from this funding over fiscal year 2021 to 2022
• Program Quality Enhancement Grants (PQEG) funding will be based on demand and 100% of existing licensed early learning and childcare programs who are approved for the PQEG will benefit from this action in fiscal year 2021 to 2022
• investments in infrastructure will benefit up to 3 communities and support the preservation and/or creation of up to 70 licensed spaces during the 2021 to 2022 fiscal year
• the investments in licensed centre-based early learning and child care programs with out-of-school spaces will result in as many as 43 licensed early childhood programs serving 817 children could benefit from funding that will support the sustainability of current programs and offer more parents an option to access out-of-school care
• the investments in licensed centre-based early learning and child care programs with preschool spaces will result in as many as 34 centres serving 584 children that could benefit from funding that will support the sustainability of current programs and offer more parents an option for access to care for preschool age children
• the investments in new child care spaces will be based on demand with the potential creation of up to 70 new child care spaces

References

Government of the Northwest Territories (2013). Right from the Start: A Framework for Early Childhood Development in the NWT.
https://www.ece.gov.nt.ca/sites/ece/files/resources/ecd_framework_and_action_plan-_final_-_mar_2014.pdf

Government of the Northwest Territories (2017). Right from the Start: Early Childhood Development Action Plan 2017 to 2020:
https://www.ece.gov.nt.ca/sites/www.ece.gov.nt.ca/files/resources/ecd_action_plan_2017-20_-_june_2017.pdf

Preamble

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

2.0 Area of focus

2.1. Northwest Territories 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 or 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
  • Black and racialized children
  • families from official language minority communities
  • families in underserved communities
  • those working non-standard hours and/or families with children with disabilities and children needing enhanced or individual supports

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

2.3. The Northwest Territories may use up to 10% of its workforce funding allocation towards administrative 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 2) basis:

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

3.2. The final amount to be paid to Northwest Territories 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 Northwest Territories in 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, Northwest Territories' estimated share of the amount described in section 3.1 (a) of this Annex will be as follows.

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

3.4. Sections 4.6.1 to 4.6.5 of the Agreement, respecting carry forward, apply to funds provided under this annex.

4.0 Accountability