Canada – Northwest Territories Canada-Wide Early Learning and Child Care Agreement – 2021 to 2026

2.1 Objectives

2.1.1 Canada and the Northwest Territories commit to the following territorial objectives:

• affordability:
  • the Northwest Territories commits to using federal funding to reduce out-of-pocket parent fees for regulated ELCC spaces for children under age 6 by an average of 50% from 2019 levels by the end of 2022
  • the Northwest Territories commits to using federal funding to reduce out-of-pocket parent fees for full-time regulated ELCC spaces for children under age 6 to an average of $10 per day by the end of fiscal year 2025 to 2026
• access:
  • the Northwest Territories commits to using federal funding to increase the net number of regulated child care spaces for children under age 6 by at least 300 spaces to achieve a coverage rate of 59% by fiscal year 2025 to 2026
  • in creating these 300 child care spaces, the Northwest Territories commits that:
    • federal funding will be used exclusively to support not-for-profit, public child care providers or operations, as well as family-based child care (family day homes)
    • federal funding will be exclusively used to support regulated child care delivery by licensed providers
• quality:
  • the Northwest Territories commits to use federal funds to demonstrate meaningful progress on improving quality, including:
    • developing and implementing evidence based quality frameworks, standards, and tools for early learning and child care
    • developing a wage grid for early childhood educators and committing to its implementation
    • increasing the percentage of child care workers providing regulated child care in the territory who fully meet the Northwest Territories’ credentialing and/or certification requirements to at least 30% by fiscal year 2025 to 2026 and 60% by fiscal year 2030 to 2031, as set out in the action plan
• inclusive:
  • the Northwest Territories commits to develop and fund a plan to ensure that new space creation ensures diverse and/or vulnerable children and families, including children with disabilities and children needing enhanced or individual supports, Indigenous children, Black and other racialized children, children of newcomers, and official language minorities, have spaces equivalent to or greater than their share of the population in the territory
  • in supporting inclusive child care, the Northwest Territories commits:
    • to track the number of inclusive spaces with inclusive programming created and converted as well as the annual public expenditures on child care programming dedicated to children from diverse and/or vulnerable families
  • data sharing and reporting:
    • the Northwest Territories commits to share financial and administrative data (including micro data) needed to monitor progress in establishing the Canada-wide system

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

2.2 Eligible areas of investment

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

1. regulated programs and services are defined as those that meet standards that are established and/or monitored by provincial and territorial governments and Indigenous governments and authorities
2. not-for-profit providers and operations, which includes publically delivered operations, are defined as those that provide child care services to a community for a purpose other than generating a profit, typically improving family and/or child well being and/or development. Providers may generate a profit, but the surplus earnings, or other resources, are directed towards improving child care services rather than distributed for the personal benefit of owners, members, investors or to enhance asset growth. Early learning and child care programs and services are defined as those supporting direct care and early learning for children in settings including, but not limited to, regulated child care centres, regulated family child care homes, early learning centres, preschools and nursery schools

2.2.2 In developing and delivering its ELCC programs and services, the Northwest Territories agrees to take into account the needs of official language minority communities in its jurisdiction.

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

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

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

3.2 Canada-wide early learning and child care bilateral agreements

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

3.2.2 In the event this Agreement is extended in accordance with the terms of sections 3.2.1 and 9.0, the Northwest Territories may continue to use funding provided to cover the same eligible areas of investment as those covered through funding received for the period of fiscal year 2021 to 2022 to fiscal year 2025 to 2026 subject to the terms and conditions of that extended Agreement.

4.2 Allocation to the Northwest Territories

4.2.1 Subject to Parliamentary approval of appropriations, Canada has designated the following maximum amounts to be transferred in total to all provinces and territories under this initiative with a fixed base rate of $2 million per year for each province and territory and the balance of the funding on a per child (0 to 12) basis for the period starting on April 1, 2021 and ending on March 31, 2026. This funding includes financial commitments made as part of the fiscal year 2021 to 2022 to fiscal year 2025 to 2026 Canada-wide early learning and child care agreements.

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

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

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

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

• F is the annual total funding amount transferred to provinces and territories for the fiscal year minus the base funding from all provinces and territories
• K is the total population of children aged 0 to 12 in the Northwest Territories on July 1 of that fiscal year, as determined using population estimates from Statistics Canada
• L is the total population of children aged 0 to 12 on July 1 of that fiscal year, as determined using population estimates from Statistics Canada

4.2.4 For the purposes of the formula in section 4.2.3, the population of children aged 0 to 12 for the Northwest Territories for each fiscal year and the total population of children aged 0 to 12 in all provinces and territories for that fiscal year are the respective populations as determined on the basis of the preliminary estimates of the respective populations on July 1 of that fiscal year. These estimates are released by Statistics Canada in September of each fiscal year.

4.3 In this Agreement, “fiscal year” means the period commencing on April 1 of any calendar year and terminating on March 31 of the immediately following calendar year.

4.4 Payment

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

• 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 within 30 days after the first installment has been paid
• 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 once conditions in section 5.2 are satisfied

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

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

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

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

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

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

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

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

4.4.10 Payment of Canada’s funding for each fiscal year of this Agreement is subject to an annual appropriation by the Parliament of Canada for this purpose. Likewise, use of the funding by 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 shall not exceed:

• 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 In fiscal year 2021 to 2022, at the request of the Northwest Territories, and subject to approval of Canada’s Treasury Board, the Northwest Territories may retain and carry forward to the following fiscal year any unexpended funds remaining from the Northwest Territories’ annual contribution payable under section 4.2, up to a maximum of 85% of the contribution payable. Any unexpended funds in excess of 85% of the contribution payable represents an overpayment subject to section 4.7.

4.6.2 In fiscal year 2022 to 2023, at the request of the Northwest Territories, and subject to approval of Canada’s Treasury Board, the Northwest Territories may retain and carry forward to the following fiscal year any unexpended funds remaining from the Northwest Territories’s annual contribution payable under section 4.2, up to a maximum of 85% of the contribution payable. Any unexpended funds in excess of 85% of the contribution payable represents an overpayment subject to section 4.7.

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

4.6.4 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.

4.6.5 For greater certainty, any amount carried forward under sections 4.6.1 to 4.6.3 is supplementary to the maximum amount payable to 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 sections 4.6.1 to 4.6.3 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 payable pursuant to section 4.2 that remains unexpended at the end of that fiscal year and is not carried forward in accordance with sections 4.6.1 to 4.6.3. Such amounts are considered debts due to Canada and shall be repaid in accordance with section 4.7.

4.7 Repayment of overpayment

4.7.1 In the event payments made to the Northwest Territories exceed the amount to which the Northwest Territories is entitled under the Agreement and/or unexpended funding is in excess of the carry forward allowance, the amount of the excess is a debt due to Canada and shall be repaid to Canada upon receipt of notice to do so and within the period specified in the notice.

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

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

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

5.1 Action plan

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

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

5.1.3 By the beginning of fiscal year 2023 to 2024, the Northwest Territories commits to share with Canada its fiscal year 2023 to 2024 to fiscal year 2025 to 2026 action plan. The action plan shall include the elements described in section 5.1 (i) a) to f). Once the parties agree that the annual action plan is final, the action plan may be published by 1 or both of the parties and Canada will be able to provide the Northwest Territories with its first payment for the fiscal year 2023 to 2024 according to section 4.4.

5.2 Reporting

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

5.2.2 Starting in fiscal year 2022 to 2023, by no later than October 1st of each fiscal year during the period of this Agreement, the Northwest Territories agrees to:

1. 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. description of the activities, expenditures and results of the Agreement as set out in Annex 2
   2. results achieved in working towards the vision for Canada-wide ELCC set out in this Agreement, including average child care fees and progress toward the average 50% reduction in fees by the end of 2022 and reaching an average fee of $10 per day by fiscal year 2025 to 2026
   3. results achieved according to the indicators and targets referred to in Annex 2
   4. the impact on families more in need, as described in section 2.2.5, including progress toward specific Northwest Territories targets as described in Annex 2, such as the numbers of inclusive spaces supported by federal funding and by category
   5. additional available information to be reported annually that would be useful to assess progress
   6. description of any relevant consultation processes, the type of groups consulted and annual priorities related to stakeholder feedback referred to in Annex 2
   7. any additional results of an annual child care census as per section 5.2.2 f) and any evaluation activities undertaken in the fiscal year, as available
2. continue to provide to Canada additional data required for the publication of the annual National Progress Report
3. provide to Canada an audited financial statement of revenues received from Canada under this Agreement during each fiscal year, indicating:
   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 ELCC 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 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.

4. provide financial and administrative information, as required, to demonstrate progress in meeting the requirements in this Agreement
5. Canada and the Northwest Territories recognize the importance of reporting to the public on results achieved under this Agreement. Within 365 days of the end of each fiscal year during the period of this Agreement, the Northwest Territories agrees to report to the people of the Northwest Territories and Canada on the results and expenditures of ELCC programs and services. The report shall show separately the results attributable to the funding provided by Canada under this Agreement and be consistent with the annual report outlined under section 5.2.2 a)
6. to inform reporting on results related to the Northwest Territories action plan, the Northwest Territories agrees to undertake, and share results with Canada from, an annual census of child care providers and other participants in the sector in the Northwest Territories to collect information, including: number of children enrolled, capacity (number of spaces), number of Early Childhood Educators (ECEs), ECE wages and qualifications, fee charged to parents, subsidies, number of First Nations, Inuit or Metis child care spaces supported, etc. Costs of undertaking such a census would be eligible expenses under this Agreement, to the maximum set out in section 4.5.1

5.2.3 Canada, with prior notice to the Northwest Territories, may incorporate all or any part or parts of the annual report described under section 5.2.2 a) into any public report that Canada may prepare for its own purposes, including any reports to the Parliament of Canada or reports that may be made public.

5.3 Audit

5.3.1 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.

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

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.

Federal vision

The Federal Government’s Budget 2021 provides new investments to build a high-quality, affordable, flexible, and inclusive early learning and child care system across Canada. These investments total up to $30 billion over the next 5 years, and combined with previous investments announced since 2015, $9.2 billion every year thereafter, permanently. Of that amount, $27.2 billion over 5 years will support direct transfers to provinces and territories.

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

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

The Government of Northwest Territories (GNWT) has invested in development of the early learning and child care system in the Northwest Territories (NWT) with priorities identified in the 19th Legislative Assembly’s Mandate including universal child care. The GNWT will collaborate with the Government of Canada to help achieve this shared vision of a Canada-wide system that recognizes the territory’s particular context for early learning and child care.

Existing early learning and child care system in the Northwest Territories

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

From small, fly-in communities, to larger regional centers, 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, it is important to develop a plan that is both flexible to meet individual community needs and grounded by a common vision of supporting families with children from birth to 5 years of age to develop high quality early learning and child care that is accessible, affordable, and inclusive for all children and families in the NWT.

The Department of Education, Culture and Employment (DECE) provides funding and support for Indigenous governments, non-profit organizations, and individuals to provide a variety of early learning and child care programming that best meets their community’s 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. The Canada-wide vision recognizes the unique needs of communities and offers flexible options to provide affordable, accessible, inclusive, high-quality early learning and child care.

In addition to the territorial investment, federal funding provided through the Canada-wide Early Learning and Child Care (ELCC) Agreement (Agreement) will support the development of a community-based system of quality, licensed early learning and child care in the NWT. The goal is for all families to have access to high-quality, affordable, flexible and inclusive early learning and child care no matter where they live in the territory.

It will take time and coordinated effort between the Government of Canada, the GNWT, Indigenous Governments, licensed early learning and child care programs, early childhood educators, post-secondary institutions, and other community partners to transform the early learning and child care system in the NWT. This is an opportunity to work together to make meaningful change for young children and families throughout the territory.

Vision for future directions

An early learning and child care system that recognizes the needs of all children in the NWT has been supported through investments by the GNWT and Canada, specifically:

• the Multilateral Early Learning and Child Care Framework (Framework) set the foundation for governments to work toward a shared long-term vision where all children can experience the enriching environment of quality early learning and child care that supports children’s development to reach their full potential. The Framework identifies areas of focus to increase quality, accessibility, affordability, flexibility and inclusivity in early learning and child care, with consideration for those more in need. It also recognizes diversity and promotes early learning and child care systems that are respectful of language and culture, including the unique needs of Indigenous peoples and French minority communities
• the fiscal year 2021 to 2022 to fiscal year 2024 to 2025 Canada-NWT bilateral extension Agreement and corresponding action plan (fiscal year 2021 to 2022) identifies investments to support improved access and quality of the NWT’s licensed early learning and care system. These build on the improvements made and lessons learned since the initial Canada-NWT ELCC bilateral Agreement (fiscal year 2017 to 2018 to fiscal year 2019 to 2020)
• the Workforce Development funding (fiscal year 2021 to 2022) provided through the fiscal year 2021 to 2022 to fiscal year 2024 to 2025 Canada-NWT ELCC bilateral Agreement supports early childhood educators’ recruitment and retention through professional learning initiatives, cultural resource development, ensuring safe and healthy environment, and the development of post-secondary learning opportunities within the territory
• this new fiscal year 2021 to 2022 to fiscal year 2025 to 2026 Canada-NWT Canada-wide ELCC Agreement and action plan (fiscal year 2021 to 2022 to fiscal year 2022 to 2023) identifies actions related to affordability, accessibility with prioritization of not-for-profit care, inclusion, and quality, as well as increased reporting to inform the NWT and national systems for early learning and child care

The GNWT recognizes the need for flexibility in responding to the evolving needs of existing early learning and child care programs and to supporting the establishment of new licensed programs.

The GNWT’s vision for early learning and child care is based on a foundational belief that high quality early learning and child care should be available for all NWT families who want or need it. This aligns with the Canada-wide initiative to promote transformative change within the early childhood sector. Through the federal funding provided within both agreements, and with the shared focus on development of the early learning and child care system within the NWT and nationally, this is an opportunity to reimagine what early learning and child care looks like in the territory and to incorporate innovative ideas that best support the system now and going forward. It will take time to improve the outcomes for young children and will require coordination and planning within the GNWT and with Indigenous Governments and other partners.

Along with our partners, Canada and the GNWT will work together to support transformational change and development of a system that promotes a community driven, child and family-centered, culturally relevant system that provides high quality programs and services for all young children and their families across the NWT. This Agreement marks a significant milestone in the early learning and child care sector.

Areas of focus include:

• affordability:
  • 50% reduction in average child care fees for licensed early learning and child care programs by December 2022
  • an average of $10 per day per child by fiscal year 2025 to 2026 for all licensed early learning and child care spaces
• access:
  • from fiscal year 2021 to 2022 to fiscal year 2022 to 2023, the creation of 75 more high-quality, affordable regulated child care spaces, through non-profit, publically provided/public programming and family day homes to meet the needs of children and families, which includes 70 spaces to be created in fiscal year 2021 to 2022 through the extension to the Canada-NWT ELCC bilateral Agreement
  • in fiscal year 2023 to 2024, the creation of 75 more high-quality, affordable regulated child care spaces, through non-profit, publically provided or public programming and family day homes, to meet the needs of children and families
  • in fiscal year 2024 to 2025, the creation of 75 more high-quality, affordable regulated child care spaces, through non-profit, publically provided or public programming and family day homes, to meet the needs of children and families
  • in fiscal year 2025 to 2026, the creation of 75 more high-quality, affordable regulated child care spaces, through non-profit, publically provided or public programming and family day homes, to meet the needs of children and families
  • by fiscal year 2025 to 2026, the creation of a total of 300 full-time equivalent regulated not-for-profit spaces for children from birth to age 5 through publically provided/public programming and family day homes
• inclusion:
  • by fiscal year 2022 to 2023, the GNWT will complete analysis to examine how children from vulnerable or equity seeking families, including those with specific developmental needs, are currently included in early learning opportunities across the territory to identify strengths and barriers that exist within the early childhood sector
  • by fiscal year 2025 to 2026, the NWT commits to develop and fund a plan to promote integrated services that will enable access to early learning for children from vulnerable or equity seeking families. This includes children with disabilities and those needing enhanced or individual supports, Indigenous children, children living in low-income homes, Black and other racialized children, children of newcomers to Canada, and children from official language minority communities that is representative of the population of the NWT
  • by the end of fiscal year 2025 to 2026, vulnerable children and children from diverse populations will have access to early learning and child care programs
• quality:
  • in fiscal year 2022 to 2023, provide a retention incentive to early childhood educators working in licensed centre-based programs with up to 312 educators benefitting
  • by fiscal year 2022 to 2023, establish a wage grid which will inform funding changes planned for implementation in fiscal year 2024 to 2025
  • by fiscal year 2025 to 2026, implement the wage grid with operational funding provided to licensed centre-based programs to support early childhood educators working in those programs
• increased reporting:

  To inform ongoing improvements to the ELCC system in the NWT and across Canada, substantial data collection and reporting are necessary. As part of the Canada-NWT Canada-wide ELCC Agreement, increased data collection and reporting of financial and administrative requirements will occur within the territory. One of the primary methods of gathering data will be through an annual census of child care providers. The results of the census will be shared with the federal government and the data gathered from the census will also inform program and policy development within the ELCC sector in NWT.

  Strengthening human capacity within the department is also a priority for the GNWT as part of the Canada-NWT Canada-wide ELCC Agreement. Additional positions will be created to support the increased need for reporting and data collection. Further, positions will be created to support the increased need for financial planning, and policy and program development that will occur as the Canada-wide ELCC system within the NWT is implemented.

  • by March 31, 2022, to support the enhancement of human resources capacity, NWT will have outlined specific plans to increase its capacity within DECE:
    • identification of new positions to support the creation of licensed spaces and quality program development and implementation, including professional learning opportunities
    • new positions to support financial planning and reporting
    • identification of new positions to support data collection, monitoring and evaluation of the system
  • beginning in fiscal year 2022 to 2023 and continuing to fiscal year 2025 to 2026, DECE will begin the human resources expansion
  • by March 31, 2025, the GNWT will have a plan in place to procure or establish an information technology data framework to capture early learning and child care data
  • by March 31, 2023, NWT will have developed an annual census or survey of child care providers and other participants in the sector
  • by March 31, 2024, NWT will have begun implementation of an annual census/survey of child care providers and other participants in the sector
  • by March 31, 2025, NWT will have consistent licensed early learning and child care baseline data, including:
    • number of children enrolled
    • capacity (number of spaces)
    • number of early childhood educators
    • early childhood educators’ wages and qualifications
    • fees charged to families
    • licensed program funding
    • number of First Nations, Inuit or Metis child care spaces supported
    • number of children from birth to age 5 who present with vulnerabilities and/or with specific developmental needs that are in licensed early learning and child care

The Northwest Territories’ approach to a Canada-wide system

The Government of Canada’s Budgets 2016 and 2017 provided $7.5 billion over 11 years to support and create more high-quality, affordable child care across the country, and to strengthen Indigenous early learning and child care. Since fiscal year 2017 to 2018, the Government of Canada has provided funding to provinces and territories totalling $1.6 billion over 4 years to support their unique early learning and child care needs. Over the next 4 years, an additional $2.06 billion in federal funding to support the bilateral ELCC agreements will be provided to provinces and territories. This investment includes no less than $130 million per year beginning in fiscal year 2018 to 2019 for Indigenous early learning and child care, provided directly to Indigenous Governments and organizations through the Indigenous ELCC agreements. This is in addition to $132 million in funding provided annually through Aboriginal Head Start and First Nation and Inuit Child Care programs.

The Indigenous ELCC Framework (2018) represents the Government of Canada and Indigenous peoples’ work to co-develop a transformative Indigenous framework that reflects the unique cultures, aspirations, and priorities of First Nations, Inuit, and Métis children across Canada. These bilateral agreements are between Canada and Indigenous Governments. As with the Multilateral ELCC Framework, the Indigenous ELCC Framework established 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. It will be important to develop a collaborative plan with First Nations, Inuit, and Métis Nation organizations in the NWT to ensure that Indigenous children living in the territory have access to affordable, high-quality, and culturally appropriate early learning and child care programming.

Since the fiscal year 2017 to 2018 to fiscal year 2019 to 2020 Canada-NWT ELCC bilateral 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.

Investments in the early learning and child care sector are required to increase access and affordability of programs. An understanding of community needs across the territory will inform the GNWT’s investment in the sector to support the creation of sustainable quality programs for children and families. Incremental investments over time, both territorial and federal, are needed to move this work forward and create, expand and supplement supports for early childhood education in the NWT. For fiscal year 2021 to 2022, the GNWT has allocated $9.978 million to support early learning and child care; this does not include the investments for junior kindergarten (JK) and kindergarten (K) within the public education system which provides free early learning programming for 4 and 5 year olds.

The NWT ELCC Funding Programs Review (2021) identified the need to consider alternative methods to subsidizing licensed early learning and child care programs to better support sustainability. DECE has also recently completed engagement toward development of the 2030 ELCC Strategy, which included meetings with Indigenous Governments and discussions with licensed program staff throughout the territory. Consideration for what was heard during the engagement and the recommendations from the review will inform a re-envisioning of supports to licensed programs.

This requires significant time as noted in the action plan, that is, 3 years (fiscal year 2021 to 2022 to fiscal year 2023 to 2024) prior to implementation of funding changes. As a result, significant carryover is required in the first 3 years of the Agreement.

In addition, a significant increase in capacity is needed to support the planning and implementation of these innovative changes, including the need for additional positions within DECE.

The federal funding, recent ELCC review and engagement for development of the strategy are all opportunities to re-imagine the NWT’s early learning and child care system and to support the GNWT’s mandate to advance universal child care through increased affordability and accessibility of quality early learning and child care. The commitment made through the Canada-wide Agreement and action plan aligns with the areas of focus that the GNWT has identified and which DECE has heard from Indigenous Governments and licensed early learning and child care programs.

NWT indicators, targets and budget

Table 4: Canada-wide investments in Northwest Territories for fiscal year 2021 to 2022 to fiscal year 2022 to 2023

Total CW-ELCC investments in fiscal year 2021 to 2022: $6.392 million.

Total CW-ELCC investments in fiscal year 2022 to 2023: $8.766 million.

^*Given the Northwest Territories’ unique early learning and child care system, and the infrastructure and staffing challenges faced in the north, funding may move between the individual programming categories, as per section 4.8.2 of the Agreement.

The table above shows the areas of investment for the Canada-wide ELCC bilateral Agreement (fiscal year 2021 to 2022 to fiscal year 2025 to 2026) and the 2-year action plan (fiscal year 2021 to 2022 to fiscal year 2022 to 2023). These investments compliment investments identified through the Canada-NWT ELCC bilateral Agreement (fiscal year 2021 to 2022 to fiscal year 2024 to 2025) and 1-year action plan (fiscal year 2021 to 2022).

References

Government of the Northwest Territories (2013). Right from the Start: A Framework for Early Childhood Development in the NWT.

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