Early childhood education and care: Canada's challenges and next steps

In November 2006 and February 2007, respectively, the Standing Senate Committee on Social Affairs, Science and Technology and the Subcommittee on Population Health began two vitally important and comprehensive studies. The first was an examination of the state of early learning and child care in Canada. The second explored the impact of the multiple factors and conditions that contribute to the health of Canada's population – referred to collectively as determinants of health. Determinants of health encompass a wide range of personal, social, economic and environmental factors that include, for example, prenatal and early childhood experiences, education, employment, working conditions, income, social status, housing, sex, culture, physical environments, lifestyle and coping skills, to name a few. Differences in health status result from the combination and interaction of health determinants, and give rise to health disparities between individuals and among various segments of the population. The Committee and Subcommittee heard testimony from dozens of experts, and members learned much about the interrelatedness of factors and their impact on all citizens, especially on our youngest and most vulnerable. Member Senators also compared practices and policies among several countries and Canadian provinces. These studies have generated many reports (1–5), the last of which was released in June 2009. The present article highlights the reason for the studies, the major findings and recommendations for policy reform. The work of the Committee and Subcommittee was originally inspired by Canada's dismal ranking in a comparative study of early childhood education and care (ECEC) among member nations of the Organisation for Economic Co-operation and Development (OECD). Although the OECD did identify many strengths, the overall evaluation of Canada's ECEC services, excluding those delivered in Quebec, was generally negative – a “patchwork of uneconomic, fragmented services, within which a small child care sector is seen as a labour market support, often without a focused child development and education role” (6). The Kellie Leitch report (7) states that the OECD ranked Canada 21 out of 29 in overall child well-being. We know that quality ECEC sows the seeds for lifelong well-being, that every dollar invested in ECEC means much less spent on health care and social programs later in life, and that this investment reaps immeasurable dividends in terms of healthier, happier, better adjusted, more productive citizens. However, Canada spends relatively little on ECEC compared with other nations. In the OECD study, Canada was ranked last among 14 reporting member countries. Moreover, other countries were farther along in accessibility of services, coordination among stakeholders and service providers, and community participation. While money spent is an indicator of how well a country's ECEC practices work, it is not the only factor. In fact, one of the most impressive countries in terms of well-run, coordinated, integrated programs is Cuba, which is far from being a wealthy country. Cuba has developed a network of polyclinics that provide both overall wellness training and health care services. ECEC services range from comprehensive prenatal care to training grandparents on how to counsel their grandchildren. There is regular and ongoing communication among health care providers, educators and parents. In contrast, Canadian ECEC efforts are often fragmented and lacking coordination as well as cooperation among the different players. The various sectors concerned with children's well-being frequently operate independently from one another – for example, various levels of government (federal, provincial/territorial, municipal), departments within each level of government social development, education, health, educational institutions, health care providers and, of course, families. Furthermore, continuity between different administrations is needed. A lack of momentum, commitment and thoughtful planning far too often results in a shift of resources and priorities following an election, even if there is no change in government. The encouraging news is that Canada's provinces and territories are already responding to the OECD challenge. Many excellent initiatives are in place regarding interministerial cooperation curricula, community participation and parental involvement. There is a greater level of investment not only in child care spaces, but also in parental support, parenting programs and training for early childhood education staff. But, as is far too often the case, more is needed. The Committee has called for the federal government to champion the cause of ECEC. Our recommendations are: For the Prime Minister to appoint a Minister of State for Children and Youth, under Human Resources and Social Development Canada, with the responsibility of working with provincial and territorial governments to advance quality early learning, parenting programs and child care. The creation of a National Advisory Council on Children, comprising parliamentarians, community leaders (including Aboriginals), parents and representatives of other relevant organizations, to advise the Minister of State and, through him or her, other Ministers, on how best to support parents and advance quality early learning and child care. For the Government of Canada to call a series of meetings of federal, provincial and territorial Ministers with responsibility for children and youth, beginning within one year, to establish: ○ A pan-Canadian framework to provide policies and programs to support children and their families; and ○ A federal/provincial/territorial Council of Ministers responsible for early learning and child care and parental supports, to meet annually to review Canada's progress with respect to other OECD countries and to share best practices within Canada. For the Government of Canada, in collaboration with provincial and territorial counterparts and researchers, to create an adequately funded, robust system of data collection, evaluation and research, promoting all aspects of quality human development including the development of curricula, program evaluation and child outcome measures. The Committee reaffirms its belief in Canada's parents and its hope for Canada's children. Parents' choices for their children are enhanced when each community provides a solid network of parenting programs, early childhood learning and quality child care options. We call on all of Canada's governments and all of our nation's citizens to make this hope a reality and to position Canada as one of the best countries in the world for families to flourish and prosper.

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