Question Period Note: The Early Childhood Educator Workforce

What federal investments are being made to support the early learning and child care (ELCC) Workforce?

The federal government is investing over $27 billion to build a Canada-wide early learning and child care (ELCC) system with provinces and territories.

Canada-wide funding is supporting provinces and territories in their work to increase wages, implement pension plans, and introduce new education and training initiatives in support of a quality ELCC workforce.

Further federal investments announced in Budget 2024, including for additional professional training and for federal loan forgiveness, seek to even further support this critical workforce.

As part of Budget 2021, the Government of Canada is making a transformative investment of over $27 billion over five years to build a Canada-wide ELCC system with the provinces and territories (PTs). Through this, the Government of Canada has provided funding to provinces and territories to support the vision of a Canada-wide ELCC system where children in Canada have access to high-quality, affordable, flexible and inclusive child care no matter where they live. Prior to Budget 2021, and to help build the foundation of a Canada-wide ELCC system, the 2020 Fall Economic Statement (FES) announced the investment of $420 million in 2021-2022 to support the attraction and retention of early childhood educators (ECEs).

The recruitment and retention of qualified ECEs is a long-standing challenge across Canada, which has been amplified by the COVID-19 pandemic, general labour force shortages, and recent high inflation. In March 2024, the Labour Force Survey estimated the employment level among ECEs and Assistants as below pre-pandemic levels by 6.1%, with an estimated 16,100 fewer people, mostly women, working in this occupation compared to early 2020. To address the persistent recruitment and retention challenges facing the ELCC sector, the federal government worked multilaterally with PTs to first identify the problems underpinning these challenges as well as potential outcomes. This work was presented to Federal, Provincial, and Territorial (FPT) Ministers Most Responsible for ELCC as a Conceptual Frame for a Multilateral ELCC Workforce Strategy. At the July 2023 meeting of FPT Ministers Most Responsible for ELCC, Ministers agreed to develop a Canada-wide, multilateral workforce strategy for the ELCC workforce under the pillars of recruitment, retention, and recognition. Since then, federal, provincial and territorial officials have met regularly to advance the work on the strategy, engaging with stakeholders and providers.

Canada-wide ELCC Agreements with PTs contain commitments to support a qualified ELCC workforce, such as wage grids for educators and initiatives to increase the percentage of certified ECEs. Under the Canada-wide ELCC Agreements, six PTs have adopted a wage grid, Prince-Edward Island already has an existing wage grid system, and Ontario and Alberta have implemented wage floor, wage top-ups and instituted wage improvements which serve as a salary grid. The remaining jurisdictions have committed to developing a wage grid during the current term of the agreements, with the exception of Quebec, which has an asymmetrical agreement with the Government of Canada and had a wage grid in place prior to the signing of the agreement.

PTs maintain primary jurisdiction over the ECE workforce, their education and training requirements to work as a certified/registered ECEs, and other labour-related considerations (e.g. wages and compensation). Several provinces and territories have announced new programs, grants, or supports for the ECE workforce over the past year using federal funding, whether through workforce or Canada-wide agreements. For example:

Nova Scotia:

Announced in February 2023, new funding for child care centres which includes increases to ECE wages with an added $1.50 per hour for ECEs with advanced practitioner program certificates.

Announced in May 2023, work began to implement a new retirement savings plan and benefits for ECEs working in licensed child care facilities and family home agencies.

Announced in December 2023, new funding for wage increases agencies by about $3.14 to $4.24, depending on their level of education and experience, and a new pension and benefits plans for the child care sector.

Newfoundland and Labrador:

Announced in March 2023, a new wage grid (effective April 1, 2023) with a base rate of $25/hour for level II ECEs who hold a 2-year diploma and scales appropriately based on training and years of experience.

Announced in August 2023, a new bonus of $5,178 for certified francophone early childhood educators working in regulated child care services.

Announced in September 2023, a new recruitment and retention grant of $2,500 to $7,500 following each three-year renewal of Level I to IV child care services certification.

Manitoba:

Announced in April 2023, increases to ECE wages effective July 1, 2023

Announced in June 2023, a $6M investment in ECE tuition reimbursement providing up to $5,000 per academic year.

Announced in May 2024, a $10.3 million investment to increase wages to meet wage grid levels and $2.55 million to boost operating funding by 5% starting April 1, 2024.  

Yukon:

Announced in May 2023, a First Nations “Understanding the Early Years” course, providing successful learners with a level I certificate to practice as an ECE.

Announced in November 2023, a review of the Child Care Act which will modernize credentialing and staff qualification regulations to align with current best practices.

Alberta:

Announced December 1, 2022: On January 1, 2023 wage top-ups for all paid hours increased by up to two dollars per hour

Announced in March 2023 investment of more than $1.4 million for a pilot project to help immigrant women start or grow careers as certified early childhood educators.

Saskatchewan:

Announced in June 2023, a $12M investment to provide tuition free training for prospective and current ECEs.

Announced in September 2023, a $7M investment to increase the wages for ECEs from $1.50 to $2.50 per hour depending on level of certification, available October 1, 2023.

Announced in August 2024, nearly $35 million over two years to continue to deliver tuition-free early childhood educator (ECE) training, professional development and student financial support.

Prince Edward Island:

Announced in August 2023, wage increases for ECEs and staff at designated Early Years Centres effective October 1, 2023, ranging from $0.50 to $1.75 per hour as well as the development of a Defined-Contribution pension plan. This was in addition to the previous wage increases for staff at Early Years Centres, including for ECEs, which took effect on October 1, 2022 and October 1, 2021.

Announced in January 2024, updated regulations allowing for increased enrollment, modernized titles for staff certification levels and added pathways to obtain certification and bring changes to prevent delays in filling vacancies at centres.

British Columbia

Announced in October 2023, eligible ECEs working at participating licensed child care facilities will receive a $2-per-hour raise in January 2024, based on hours worked in December 2023, on top of the existing $4-per-hour raise.

Announced in May 2024, additional $45 million for the ECE Education Support Fund, which provides as much as $5,000 per semester for eligible ECE students. Moreover, approximately $11 million in additional funding for new and ongoing professional learning opportunities 

Ontario

On November 16, 2023, Ontario launched its Child Care Workforce Strategy, supported by funding through the Canada-Ontario Canada-wide ELCC Agreement.

Starting in 2024, initiatives will include:

Increasing the starting wage for Registered Early Childhood Educators (RECEs) employed by child care operators enrolled in the CWELCC system, to $23.86/hour in 2024 from the planned $20/hour, increasing to $25.86/hour by 2026

Extending the eligibility ceiling for the existing annual $1/hour increase so more RECEs can benefit

Supporting entry into the profession and career development

Cutting red tape for employers and providing more flexibility in staffing their programs

Launching a promotional campaign to bolster awareness and value of the child care profession.

Nunavut

Announced in October 2023, launch of the ELCC Wage Scale Program to replace their current recruitment and retention fund that provides wage enhancements for ECEs. The optional wage scale recommends a minimum wage of up to $34.39/hour for ECEs and includes minimum wages for management, program support, and centre support staff.

Additional Information on data and reporting

Provinces and Territories (PTs) are the custodians of data related to the implementation of Canada-wide system in their respective jurisdiction. The Federal ELCC Secretariat relies on PTs to collect and share space creation data and progress on indicators with the Secretariat. Under Canada-wide ELCC Agreements, beginning in fiscal year 2022-2023, provinces and territories (PTs) are required to submit an annual report on results achieved according to indicators and targets negotiated through action plans, including for spaces created between April 1 and March 31 of the previous fiscal year. This report is due in October.

The six-month lag in reporting time permitted in the Canada-wide ELCC Agreements, allows PTs to collect and analyze data, as well as to prepare their reports and, where needed, acquire approvals for the public release of their data. It should also be noted that PTs have varying capacity to collect and report data, with some that could only have the basic key data and that PTs’ approach to reporting new spaces in Annual Reports has not always been consistent.

PTs have taken different approaches to publicly announcing new spaces. Some PTs announce new spaces via news release as soon as funding is announced, while others announce spaces only after they have been created or are operational, while others choose not to make formal announcements.

Additional information on fluctuations on Early Childhood Educator counts

There are many different ways to measure and report on ECE counts. In terms of data sources, two of the most common for measuring ECE counts are the monthly Labour Force Survey (LFS) and the Census (repeated every 5 years, with 2021 data being the latest available currently).

As both the LFS and the Census are surveys, they are subject to biases and errors, e.g., sampling error. In general, Census estimates will be more robust than monthly LFS estimates but are not as timely – Census estimates may be several years old. Census estimates are also available in much more detail than monthly LFS estimates, and can break provincial ECE counts down by variables including gender, immigrant status, etc.

While the monthly LFS is timely and commonly used, it is best for monitoring longer term trends, rather than comparing single points in time. Fluctuations due to biases and errors are normal and expected. This is especially the case when looking at specific occupational counts by province, such as ECE counts. In this case, while two points in time can be used to paint a general picture, it is generally not recommended to put meaning into smaller shifts in either direction, as these are often simply due to normal margin of error. In the case of fluctuations where there is no statistical significance, estimates are simply referred to as “unchanged” or “little changed”, rather than “increased” or “decreased”.

Finally, it is important to consider the definition of “child care worker” used when making comparisons, to ensure the same National Occupational Classification (NOC) is being referred to in each case. For example, “child care worker” can include:

Early childhood educators and assistants (NOC 42202);

Home child care providers (NOC 44100); and

Home support workers, caregivers and related occupations (NOC 44101).

If pressed on training and recognition

The Government of Canada recognizes the importance of a highly trained, qualified ELCC workforce to ensure the availability of high-quality child care.

As a part of Budget 2024, the federal government has committed $10 million over two years to increase training for early childhood educators.

Furthermore, the federal government will invest $48 million over four years, starting in 2025-26, and $15.8 million ongoing for student loan forgiveness for early childhood educators living in rural and remote communities.

If pressed on ECE wages

The Government of Canada recognizes the importance of a well-supported ELCC workforce to ensure the availability of high-quality child care.

Nine provinces and territories have already implemented wage grids, wage floors, or wage top ups under their respective agreements.

Work is also underway with all provinces and territories to advance the development of a multilateral workforce strategy based on the pillars of recruitment, retention, and recognition to support the early learning and child care workforce.

If pressed on measures announced in Budget 2024

The federal government will invest $48 million over four years to offer student loan forgiveness for early childhood educators working in rural and remote communities.

Additionally, $10 million will be invested over two years to increase training for early childhood educators.

The federal government will also establish a Sectoral Table on the Care Economy that will consult and provide recommendations to the federal government on concrete actions to better support the care economy, including the ELCC workforce.