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Introduction and methodology

Child Care Now’s Innovation Project: Growth by Design explores, evaluates, and proposes innovative strategies to enhance the sustainability and expansion of public and not-for-profit early learning and child care (ELCC) in Canada. As part of this initiative, seven case studies – in Newfoundland and Labrador, Prince Edward Island, Nova Scotia, Ontario, Manitoba, British Columbia, and Nunavut – have identified promising approaches to ELCC expansion and exploring policies and practices that enhance equitable access for families.

The case studies focus primarily on the expansion of public and not-for-profit ELCC services – both physical and operational – but they also encompass the broader policy and programmatic environment that enables or constrains growth. 

This document provides an overview of the ELCC landscape in Nova Scotia and outlines the province’s key commitments under the Canada-wide Early Learning and Child Care (CWELCC) funding agreement relevant to expansion. It also reports on the Nova Scotia case study activities, which included: 

• A review of government websites and documents, policy frameworks, and public reports related to ELCC;
• Compilation and analysis of relevant data from successive editions of Early Childhood Education and Care in Canada;
• Key informant interviews and meetings with provincial officials, child care associations, and other key stakeholders, as well as focus groups with operators; and
• Site visits to a range of ELCC programs, providing insights into local implementation, infrastructure, and experiences with expansion.

The context for early learning and child care in Nova Scotia

According to the 2021 Census, Nova Scotia had a population of 969,383, representing a 5% increase from the 2016 Census, slightly below the national growth rate of 5.2%. By July 2025, provincial estimates placed the population at approximately 1.093 million, declining marginally to 1.092 million in the following quarter.

In 2021, there were approximately 115,500 children aged 0 – 12 in the province; this number increased to 121,800 by 2024. Maternal labour force participation rates remain high. In 2021, 79.6% of mothers with a youngest child aged 0 – 5 were in the labour force, declining slightly to 79.4% in 2024. Among mothers with a youngest child aged 6 – 12, participation decreased from 87.3% in 2021 to 86.9% in 2024.

Responsibility for ELCC in Nova Scotia rests with the Department of Education and Early Childhood Development. The department is responsible for ELCC policy, licensing, monitoring and funding of ELCC programs, administering parent fee subsidies, classifying early childhood educators (ECEs), and overseeing early intervention services for children below school age.

Service delivery is through a mixed system of not-for-profit and for-profit child care operators.

Recent history of early learning and child care in Nova Scotia

Several policy developments prior to the CWELCC agreement in 2021 laid the foundation for recent reforms.

In 2013, responsibility for child care in Nova Scotia was transferred from the Department of Community Services to the Department of Education and Early Childhood Development. 

In October 2016, the province introduced a wage floor for ECEs based on level of classification, ranging from $15 per hour for Level 1 to $19 per hour for Level 3.

In 2017, Nova Scotia introduced the Pre-primary Program for four-year-olds as part of the public education system: a play-based program staffed by ECEs. The program was phased in over four years and fully implemented in 2020. Unlike Grade Primary (for five-year-olds), Pre-primary is not compulsory.

In 2017, Nova Scotia also developed and piloted Capable, Confident, and Curious: Nova Scotia’s Early Learning Curriculum Framework, followed in 2018 by Quality Matters,  a provincial quality improvement program for licensed child care centres. Participation in Quality Matters, including implementation of the curriculum framework, is required for centres receiving provincial funding.

In the years leading up to the CWELCC, Nova Scotia experienced a steady increase in the share of for-profit child care spaces, from 43% of all spaces for children aged 0 – 12 in 2001 to 55% in 2021. In 2021, 57% of full-day spaces for children aged 0 – 5 were for-profit and Nova Scotia had licensed capacity sufficient for approximately 25% of children aged 0 – 5.

Early learning and child care since the signing of the Canada-Nova Scotia Canada-wide Early Learning and Child Care Agreement

Nova Scotia signed the CWELCC agreement on July 13, 2021. The agreement allocated $605 million in federal funding over five years. In 2021 – 2022 Nova Scotia received $68 million, with amounts increasing each year and reaching $169 million by year five.

Nova Scotia’s first Action Plan under the CWELCC agreement set out a comprehensive approach to transforming its ELCC system, with a strong emphasis on affordability, planned expansion, and a transition toward a predominantly not-for-profit model.

Promised parent fee reductions

A central commitment in the province’s original plan was to reduce parent fees by 50% by the end of 2022 and to reach an average of $10 a day child care by 2025 – 2026, supported by a redesigned subsidy system that would ensure lower-income families pay little or no fees. This was paired with the promised development of a “true cost of care” funding model intended to stabilize operations and align public funding with the actual cost of delivering quality programs.

Promised growth of licensed child care

Rather than propose rapid growth, Nova Scotia’s first Action Plan prioritized full utilization of existing spaces before creating new ones, while still committing to significant expansion: over 9,500 new spaces for children aged 0 – 5 by 2025. Growth was targeted to areas of greatest need, including infant and toddler care, family home child care, early learning programs for three-year-olds, and wraparound care in school settings for three- to five-year-olds. The province aimed to reach approximately 59% coverage by 2025 – 2026.

Move to not-for-profit delivery and governance restructuring

A defining feature of Nova Scotia’s plan is an explicit commitment to shift the system toward not-for-profit and public provision. Federal funding for new spaces was restricted to not-for-profit, public, and family-based providers, and the province introduced time-limited financial support to encourage existing for-profit operators to transition to not-for-profit status. This transition was intended to reduce reliance on for-profit delivery without destabilizing existing services.

Originally, this shift was supported by a broader restructuring of governance. Nova Scotia proposed the creation of a provincial agency responsible for managing all regulated child care, including planning, funding, workforce development, and system coordination. The agency would be responsible for managing provincial waitlists, recruiting and retaining ECEs, conducting needs assessments, and ensuring expansion reflected community need. The agency would also be the first point of contact for families looking for child care. This model was designed to move away from a fragmented, market-driven approach toward a more integrated, publicly managed system, with a stronger role in needs-based planning and allocation of spaces. The agency was not established by the Nova Scotia government that was elected soon after the signing of the first CWELCC funding agreement.

Workforce supports

Workforce development was another core pillar of Nova Scotia’s CWELCC action plan. In 2021, Nova Scotia released its workforce strategy, Excellence in Early Childhood Education. The strategy outlined the province’s workforce priorities and initiatives under the CWELCC agreement. Three pillars guide the workforce strategy:

• Professional recognition of ECEs; 
• Pathways to education; and
• Lifelong learning in early childhood education.

The province committed to implementing a compensation framework, including a wage grid, alongside substantial investments in training, upskilling, and professional development. The goal was to increase qualifications across the workforce and improve recruitment and retention, with a target of 70% of staff holding an ECE diploma or higher by March 31, 2023. The first provincial wage scale for ECEs working in provincially funded child care centres or licensed family child care agencies was introduced in November 2022, with retroactive lump-sum payments covering the period back to July 2022.

Updates to the wage scales

The wage scale was revised in April 2024 and is updated annually; the most recent version took effect on April 1, 2026.¹  Under the 2026 wage scale, hourly wages range from $25.61 for a Level 1 ECE with less than one year of experience to $34.60 for a Level 3 director with more than four years of experience.² 

Quality and inclusion

Quality and inclusion are embedded throughout the province’s CWELCC plan. Nova Scotia said it would expand its Quality Matters system across all ELCC programs and strengthen curriculum implementation, while also increasing supports for children with additional needs and prioritizing access for equity-seeking groups. The plan also emphasized flexible, family-centred approaches, including expanded wraparound care and community-responsive service design.

2023 – 2026 Action Plan

A second CWELCC Action Plan was put in place for 2023 – 2026. It builds on earlier commitments but also includes some important new elements. Most notably, the plan more clearly frames the goal of building a publicly funded and managed system, signalling a move beyond short-term expansion toward longer-term system transformation.

While the first plan focused on space creation, and to some extent on fee reductions, the second plan places greater weight on how the system is organized and governed, including stronger attention to planning, data systems, and partnerships with public institutions such as schools, municipalities, and post-secondary organizations.

At the same time, the plan reflects a more cautious and incremental approach to structural reform. A key change is the decision to pause the creation of a centralized provincial child care management body, which had been a distinctive feature of Nova Scotia’s earlier commitments. Instead, the province indicates it will continue to assess options for system governance while proceeding with other elements of implementation. This suggests a shift toward strengthening existing systems rather than introducing major institutional restructuring in the short term.

Another significant development is the increased focus on system sustainability and workforce supports, including continued implementation of the wage grid and the rollout of sector-wide benefits and a defined benefit pension plan. These measures are intended to stabilize and professionalize the workforce, recognizing that expansion targets cannot be achieved without addressing recruitment and retention challenges. 

Province-wide pension and benefit plans for early childhood educators

A significant workforce initiative introduced in 2024 was the establishment of a province-wide defined benefit pension plan for ECEs and other staff working in provincially funded licensed child care programs. Effective May 2024, eligible employees began enrolling in the CAAT Pension Plan under its DBplus arrangement.

CAAT DBplus is a jointly sponsored, not-for-profit defined benefit pension plan that provides members with a predictable lifetime pension based on contributions made throughout their careers. One of its key advantages is portability: pension benefits are retained when employees move between participating licensed child care centres and home child care agencies within Nova Scotia.

Eligibility includes permanent and temporary employees hired for 12 months or longer who work at least 40% of a full-time 35-hour work week in provincially funded licensed centres and home child care agencies. To support implementation, the province provided funding to cover employer contributions retroactive to January 1, 2024. Pension contributions are shared by employers and employees, with provincial operating grants covering the employer share.³

The pension plan was introduced alongside a new sector-wide benefits package administered through Health Association Nova Scotia, which includes health, dental, life insurance, long-term disability coverage, and an Employee and Family Assistance Program.

Regulated family home child care providers receive grant funding to purchase their own health benefits and contribute to an RRSP.

Other initiatives

Since the signing of the CWELCC, Nova Scotia has introduced, or expanded, several targeted initiatives aimed at addressing persistent gaps in the system. These include financial supports for ECEs, pilots for non-standard hours of care, expanded efforts to recruit and support family home child care providers, and the development of a provincial inclusion strategy to improve access for children with diverse and complex needs. There is also a stronger emphasis on data collection, system monitoring, and needs-based planning, reflecting a shift toward a more evidence-informed approach to expansion and service delivery.

Financial support for early childhood educators

Nova Scotia provides a range of financial supports to encourage individuals to pursue ECE training at approved institutions, including the public Nova Scotia Community College and the private, not-for-profit Nova Scotia College of Early Childhood Education. These initiatives are part of the province’s broader workforce strategy to recruit and retain qualified ECEs.

The principal provincial support is the Excellence in Early Childhood Education Bursary Program, funded by the Department of Education and Early Childhood Development. For the 2026 – 2027 academic year, eligible students enrolled full-time in approved ECE diploma programs can receive:

• Up to $5,000 over the course of a full-time ECE diploma program; or
• Up to $2,000 for a Level 1 certificate program.

Students apply through their post-secondary institution, and bursary payments are applied directly to tuition. Priority is given to students from equity-deserving groups, including African Nova Scotian, Mi’kmaq and other Indigenous students, Acadian and Francophone students, newcomers, persons with disabilities, and 2SLGBTQ+ students.

Separate bursary streams are available for specific groups, including:

• Acadian and Francophone students enrolled through Université Sainte-Anne;
• African Nova Scotian students; and
• Mi’kmaq and Indigenous students.

In some cases, these bursaries provide higher levels of assistance than the general ECE bursary program.

Nova Scotia also offers tuition support for individuals upgrading their qualifications while working in the sector. These programs help cover tuition and related costs for part-time students completing ECE training while employed in licensed child care. This support has been particularly important for untrained staff seeking to obtain formal credentials.

Of note, in the March 2026 provincial budget, it was announced that eight Early Years Professional Support sites – centres that provided resources, professional learning, and leadership to ECEs and students, often within or near post-secondary institutions – would close. These centres served as hubs for professional development, offering in-person workshops aligned with provincial priorities and tailored to regional needs. The sites also housed lending libraries stocked with activity kits, books, play materials, and specialized equipment for children with disabilities.⁴ It’s understood the materials and resources from the lending libraries will remain on-site or be donated to centres and other member organizations.⁵

Family home child care training opportunities

Nova Scotia is supporting the expansion of regulated child care in part by strengthening pathways into family home child care. A notable initiative is the specialized and full-funded training offered by Jane Norman College, specifically designed for family home child care providers.

With support from the CWELCC agreement, Jane Norman College launched a two-year ECE Diploma for Family Home Providers in September 2025. The program is delivered part-time and online, allowing providers to complete an ECE diploma while continuing to operate their home child care programs.⁶ 

A non-traditional hours pilot was introduced in 2023 to provide flexible child care for, primarily, health care workers. The pilot was a partnership between Cape Breton Regional Hospital and Health Park Early Learning Centre.

The province also introduced design guidelines to support space expansion while ensuring child care spaces have purpose-built designs to allow for high quality programs. The Action Plan outlines the province’s commitment to partnering with government departments, Regional Centres for Education, post-secondary institutions, public sector organizations, and publicly funded entities to increase child care spaces. It also indicates that it will explore opportunities to strategically expand not-for-profit child care spaces by partnering with employers.

Lastly, the Action Plan includes Space Expansion Funding to support capital expansion. The grant program is divided into a Minor Infrastructure Program, of up to $20,000 per space for small scale projects, and a Major Infrastructure Program, of up to $40,000 per space for large scale, complex projects, including new construction.

Expansion of spaces 2019 – 2025 for children aged 0 – 12⁷

Between 2019 and 2025, Nova Scotia experienced some growth in centre-based care, both in spaces for children aged 0 – 5 and in before- and after-school care. It is important to note that the before- and after-school spaces include the Before and After Program (BAP), primarily serving four- and five-year-old children who attend Pre-Primary and Grade Primary. The BAP spaces are not licensed but receive funding under CWELCC and are included in the CWELCC expansion targets.

As shown in Figure 1,⁸ the province added more than 4,500 net new spaces between 2019 and 2025. There was a decrease of 867 family child care spaces between 2019 and 2023 but an increase of 646 spaces between 2023 and 2025. However, the total increase falls far short of the 9,500 additional spaces that were to be created by March 2026.

Nova Scotia’s Action Plan under CWELCC states that “Nova Scotia will not fund any new for-profit child care centres going forward. Nova Scotia will use funds from the Canada-wide system to support families to reduce their child care costs based on a not-for profit funding model.”

As Figure 2 shows, almost all the growth has been in the not-for-profit sector. In 2019, 56% of all centre spaces were for-profit; by 2025, the proportion of for-profit spaces had dropped to 44%. In terms of actual space expansion, between 2019 and 2025, for-profit spaces increased by 158, while not-for-profit spaces increased by 4,734.

As Figure 3 shows, the overall proportion of family child care spaces dropped from 10.3% of all spaces in 2019 to 5.5% in 2023, then increased to 7.3% between 2023 and 2025.

As Figure 4 shows, along with an increase in the number of licensed spaces, there has been a significant increase in public funding. While the total number of licensed spaces increased by 4,680 between 2019 and 2025, the increase in spending almost tripled, from $64.7 million in 2019 to $191 million in 2025.

Findings from the case study meetings

The case study findings are informed by a week-long visit to Nova Scotia, including Halifax, Bridgewater, Upper Tantallon, and Hubbards. The visit included consultations with provincial government officials, key stakeholder groups, and not-for-profit and public child care operators.⁹

As part of the Nova Scotia case study the team undertook focus groups, meetings, and/or interviews with:

• Provincial government officials responsible for ELCC (ED and Executive Lead for Transformation);
• Nova Scotia Community College;
• Family Child Care Agency Association;
• Association of Early Childhood Educators Nova Scotia;
• Child Care Now Nova Scotia/CUPE and UNIFOR;
• Non-Profit Directors Association;
• Cape Breton child care directors;
• ELCC support to francophone school district;
• Mount Saint Vincent University Child and Youth Studies Department Chair; and
• Mayor of Bridgewater.

The team also visited a number of child care centres in Halifax and rural areas:

Halifax Regional Municipality:

• East Preston Early Learning Centre;
• Mount Saint Vincent Child Study Centre; and
• Mi’kmaq Child Development Centre.

Rural:

• Bridgewater: Small World Learning Centre;
• Hubbards: Through the Early Years Learning Centre; and
• Upper Tantallon: Fox Hollow Child Care Centre and Family Child Care Agency.

The findings are organized into two parts: examples of successful expansion identified during site visits, and a summary of common themes raised in interviews and focus groups.

Expansion highlights 

The examples highlighted below illustrate how different child care programs visited during the case study are contributing to child care expansion in Nova Scotia. Together, they demonstrate how provincial capital funding, municipal and institutional partnerships, and strong organizational capacity can create new licensed spaces and expand access to ELCC for different types of communities.

These examples also show that successful expansion is most likely to occur where experienced organizations are able to build on existing community roots and where public partners – such as municipalities, universities, and the provincial government – contribute land, facilities, and financial support that reduce the risks and costs associated with growth.

Participants consistently emphasized that Nova Scotia has made substantial progress in strengthening its ELCC system over the past several years.

Not-for-profit multi-site expansion

East Preston Early Learning Centre provides a strong example of community-based, not-for-profit expansion in Nova Scotia. Established in 1974 as East Preston Day Care, the organization has grown from a single centre into a multi-site provider operating four licensed child care centres across the Halifax Regional Municipality, along with an after-school program at the East Preston Recreation Centre. In 2024, the organization expanded by opening two new centres: one in Porter’s Lake, where provincial funding enabled the organization to acquire and renovate a former for-profit child care centre, and another on Main Street in Dartmouth. In 2025, the Province of Nova Scotia provided capital funding for the development of a new 48-space centre adjacent to the original East Preston location and donated the parcel of land required for the project. The capital funding and land contribution significantly reduced the financial barriers to expansion for the organization.

Located in one of Nova Scotia’s largest and most historic African Nova Scotian communities, East Preston Early Learning Centre has long played an important role in supporting local families. In addition to its licensed child care centres, the organization operates the East Preston Family Resource Centre, established in 1993, which offers parenting programs and supports families from birth through adulthood. The organization’s growth demonstrates how long-standing community-based organizations can expand to meet rising demand when supported by provincial capital funding and strong community partnerships.

Municipal support for child care expansion

Small World Learning Centre is a not-for-profit child care organization based in Bridgewater, a small town in rural Nova Scotia. The centre is recognized for its Reggio Emilia–inspired and nature-based approach to early learning and has developed a strong reputation for high-quality programming serving families across the South Shore region.

Small World Learning Centre is currently undertaking a major expansion supported by both provincial capital funding and municipal contributions. Through Nova Scotia’s child care infrastructure program, the province is providing capital funding to support construction of a new purpose-built facility. Complementing this investment, the Town of Bridgewater has transferred a three-acre parcel of municipally owned land to the organization for a nominal cost of one dollar and agreed to cover legal and surveying costs associated with the transfer. The town’s mayor and council view child care as essential to the economy and keeping jobs in the community.

Together, these contributions will enable the creation of up to 90 new licensed child care spaces – approximately doubling the organization’s capacity in the community – with the new centre expected to open in 2026.

This project illustrates how provincial capital grants, combined with municipal contributions of land and related support, can significantly reduce development costs and enable experienced not-for-profit organizations to expand in response to strong local demand.

Expansion of publicly delivered child care

Mount Saint Vincent University Child Study Centre, established in 1976, is a publicly operated ELCC centre directly operated by Mount Saint Vincent University (MSVU). The Centre serves children of university students, faculty, staff, and community families while also functioning as a teaching, demonstration, and research site closely integrated with the university’s Child and Youth Study programs. Students use the Centre as a practicum placement and laboratory school, allowing them to connect academic study with hands-on experience in child development, pedagogy, inclusion, and family support.

The Child Study Centre is currently undergoing a major expansion that illustrates the contribution public post-secondary institutions can make to child care growth. In 2024, the federal and provincial governments announced a combined $5 million contribution toward the project – $3 million from the federal government and $2 million from the Province of Nova Scotia – as part of a broader $10 million redevelopment, with the university raising the remaining funds. The new 15,000-square-foot facility, expected to open by the end of 2026, will add approximately 80 to 82 new licensed spaces, including up to 32 infant spaces, and will more than double the Centre’s existing capacity.

Beyond increasing the supply of licensed child care, the Child Study Centre supports quality improvement across the broader ELCC sector. As a model program, it demonstrates evidence-informed and inclusive practices, provides practicum and observation opportunities for future educators and child and youth professionals, and supports faculty research and innovation in early learning. Through these roles, MSVU contributes not only to the direct provision of publicly operated child care but also to workforce development, professional learning, and the advancement of high-quality practice throughout Nova Scotia’s ELCC system.

Common themes and cross-cutting issues from interviews and focus groups

Interviews and focus groups conducted for the Nova Scotia case study provided a detailed overview of how recent policy reforms are affecting expansion and operations across the province. 

Improved workforce compensation

The introduction of the provincial wage scale, pension plan, and benefits package was widely viewed as transformative. Operators reported that these measures have improved recruitment, enhanced staff morale, and increased recognition of ECEs as professionals. Although challenges remain, most participants described these initiatives as among the most significant positive changes in the sector in decades.

Public partnerships facilitate expansion

Partnerships with municipalities, colleges, universities, and other public institutions were identified as one of the most effective strategies for reducing development and operating costs. These arrangements often provide reduced-cost land, low rent, and shared maintenance services, significantly improving financial viability. Examples include the donation of three acres of land by the Town of Bridgewater to expand a not-for-profit child care centre, and the current Child Study Centre operated directly by MSVU being replaced by a new and expanded centre. Both the Bridgewater and Child Development centres are supported by the provincial and federal governments.

Growing support for family home child care

Family home child care agencies reported that the sector is receiving greater attention from the provincial government than in the past, that demand is strong, and waiting lists are common. They noted that the model is particularly well suited to rural communities, infant care, and for flexible arrangements. The $7,500 start-up grant, infant incentives, benefits, and retirement supports were all cited as meaningful improvements that have reduced barriers to entry. 

Improved government consultation

Stakeholders generally agreed that the relationship between government and the sector has become more collaborative. Organizations such as the Association of Early Childhood Educators of Nova Scotia and the Non-Profit Directors Association noted greater opportunities for consultation and a stronger understanding within government of the complexity of system-building. 

Workforce capacity remains the principal constraint

Despite improved wages and benefits, workforce shortages continue to be the single greatest barrier to expansion. Operators reported ongoing difficulties recruiting qualified staff, particularly for infant programs and in rural areas. Several organizations noted that they had approved expansion projects but were unable to operate at full licensed capacity because of staffing shortages.

Recruitment challenges also persist in the family home child care sector. While recent initiatives – including start-up grants, benefits, and retirement savings contributions – have improved the attractiveness of regulated family child care, agencies reported that fee caps can reduce earning potential for providers who previously charged higher market rates. Agencies also expressed concern that their funding is based on the number of approved homes rather than the number of children served, which does not accurately reflect workload or service levels. They called for greater provincial consistency in provider fees and agency policies. 

Many stakeholders also raised concerns about the rapid expansion of accelerated training pathways and private college programs. While there was broad support for increasing the supply of qualified educators, participants emphasized the importance of maintaining program quality and ensuring that new graduates receive adequate mentoring and support. 

A particular challenge identified by operators offering both preschool- and school-age care is the disparity in compensation between staff working with younger children and those working in before- and after-school programs. Staff working in programs that care for school-age children, including four-year-olds enrolled in the BAP, are not covered by the provincial wage scale, are not eligible for the sector-wide benefits plan, and do not accrue pensionable service through the CAAT plan. In programs where staff work across both age groups, calculating wages, benefits, and pension eligibility can be administratively complex and can create inequities within the workforce. 

Several operators also reported that some parents are choosing to keep four-year-olds in full-day child care rather than enrolling them in the provincially funded Pre-Primary program, and in the BAP. The BAP is not available on professional development days, winter or spring breaks, or during the summer. As a result, some families opt to remain in full-day child care settings that provide year-round coverage. In these settings, staff working with four-year-olds are covered by the provincial wage scale and benefits package, further highlighting inconsistencies in compensation across programs serving children of the same age. 

Financial sustainability remains uncertain

Although public funding has increased substantially, many operators remain concerned about long-term financial sustainability. Fee reductions have improved affordability for families, but rising costs for rent, food, utilities, and staffing continue to put pressure on budgets.

The financial position of centres varies considerably depending on occupancy costs. Some programs operate in municipally owned buildings or schools with little or no rent, while others pay substantial commercial rents. New centres cannot charge more than the median fees in their region, but the funding does not take variations in rent into account. Operators stressed the importance of the new operational funding model in addressing these inequities and ensuring that programs can remain viable under fixed parent fees.

Expansion depends on strong organizational capacity

Expansion in Nova Scotia is being driven primarily by established organizations with experienced leadership, stable governance, and the administrative capacity to manage complex development projects.

Multi-site not-for-profit organizations, post-secondary institutions, and larger community organizations appear best positioned to expand because they have the expertise to navigate funding applications, construction, licensing, and staffing. Smaller organizations and volunteer boards may have expansion opportunities but often lack the internal capacity to take them on.

Rapid policy change has increased administrative pressure

Stakeholders welcomed many of the recent reforms but noted that the pace of change has been demanding. Directors reported significantly increased administrative responsibilities related to payroll, reporting, quality initiatives, and implementation of new funding and workforce programs.

Several noted that while policy changes are positive overall, implementation timelines can be challenging when organizations are simultaneously managing staffing shortages and expansion projects.

Need for stronger regional planning

Although the province has ambitious expansion targets, many stakeholders observed that growth still depends largely on organizations responding to expressions of interest rather than on a coordinated regional planning process.

Operators suggested that stronger planning mechanisms – grounded in population growth, labour force data, and local needs – would help ensure that new spaces are developed where they are most needed and that public investments are used strategically.

Conclusion

Since signing the CWELCC agreement in 2021, Nova Scotia has substantially reduced parent fees (though there is no established fee cap), introduced a province-wide wage scale, established sector-wide health benefits and a defined benefit pension plan, and directed virtually all new expansion to the not-for-profit and public sectors. These measures have significantly strengthened the policy and funding framework for building a more affordable, equitable, and publicly supported child care system.

A distinguishing feature of Nova Scotia’s approach is its explicit commitment to transitioning toward a predominantly not-for-profit system. Between 2019 and 2025, almost all net growth in licensed centre-based spaces occurred in the not-for-profit sector, resulting in a substantial decline in the proportion of spaces operated on a for-profit basis. This shift demonstrates that government policy and funding can shape the structure of the child care system when expansion funding is aligned with clear public objectives.

At the same time, Nova Scotia’s approach to affordability differs from that of many other jurisdictions because the province has retained a market-fee system rather than introducing a flat or capped provincial fee. Instead, parent fees are reduced through fixed provincial contributions that are subtracted from operator-set market fees. As a result, parent fees continue to vary significantly among centres and communities. Although Nova Scotia has achieved substantial fee reductions since 2021, it does not appear likely that the province will meet its commitment to achieve average parent fees of $10 a day by 2026. Recent national fee surveys indicate that Halifax continues to have among the highest child care fees in Canada outside British Columbia, despite the CWELCC reductions. The 2025 Canadian Centre for Policy Alternatives survey found median fees in Halifax of approximately $24 per day for infants and $22 per day for preschool-aged children, well above the $10 a day target. The report also noted that, unlike most other provinces, Nova Scotia has not introduced further fee reductions since late 2022 and that rising underlying market fees have eroded some of the gains achieved through the CWELCC agreement.¹⁰ 

The case study findings also highlight the importance of sustained public investment in the workforce. Participants consistently identified the wage scale, pension plan, and benefits package as transformative initiatives that have improved compensation, strengthened professional recognition, and enhanced the sector’s ability to recruit and retain educators. Nova Scotia’s workforce strategy attempts to address the longstanding undervaluation of ECEs.

However, the findings make clear that important challenges remain. Workforce shortages continue to be the most significant barrier to expansion, particularly in infant programs, rural communities, and family home child care. Many operators reported that approved spaces could not be opened or fully utilized because qualified staff were unavailable. Concerns were also raised about the sustainability of accelerated training pathways and the need to maintain quality as the workforce grows.

Financial sustainability remains an ongoing concern. Although public funding has increased substantially, operators face widely varying occupancy costs and rising expenses for food, utilities, and supplies. The viability of many programs depends heavily on access to publicly owned land or low-cost facilities provided by municipalities, universities, and other public institutions. School-age child care also remains a weak point in the system, with significant challenges related to staffing, funding, and the treatment of BAP spaces within CWELCC expansion targets.

The case study underscores the central role of experienced not-for-profit organizations and public-sector partnerships in driving expansion. Municipalities such as Bridgewater, post-secondary institutions, and larger community-based operators are demonstrating how child care can be integrated into broader public infrastructure and community development strategies. These partnerships reduce capital costs, improve sustainability, and reinforce the view of child care as essential social and economic infrastructure.

Nova Scotia’s experience illustrates both the possibilities and the complexities of system transformation. The province has established many of the core elements of a publicly funded and increasingly publicly managed system, including stronger workforce supports, strategic use of capital funding, and a deliberate shift toward not-for-profit provision. However, achieving the full vision of a universal system will require continued attention to workforce capacity, long-term operating sustainability, stronger regional planning, further fee reductions, and more robust support for family home and school-age child care. The experience also highlights the challenges of pursuing affordability objectives within a market-fee framework. As long as parent fees continue to vary among operators and regions, developing a transparent and equitable funding formula remains difficult, and families may continue to experience uneven levels of affordability. 

While significant work remains, the province has laid an important foundation for a more coherent, equitable, and sustainable ELCC system.

Policy recommendations

Nova Scotia should continue to build on the progress achieved since 2021 by focusing on the operational and structural conditions needed for long-term sustainability. The province has established the foundations for a publicly funded and increasingly publicly managed system. Continued progress will depend on strengthening workforce capacity, ensuring financial sustainability, enhancing public planning, and investing in the sector infrastructure needed to support ongoing transformation.

1. Revisit long-term governance reform

While the province has paused the creation of a centralized management body, it should continue exploring governance models that strengthen public planning, coordination, and accountability.

Potential areas for future development include:

• a provincial waitlist and parent navigation system;
• coordinated workforce planning;
• regional needs assessments; and
• more integrated management of public funding.

2. Continue the transition to a predominantly not-for-profit system

•  Nova Scotia should maintain its policy of restricting new expansion funding to not-for-profit, public, and family home child care providers and continue to support voluntary transitions of existing for-profit operators to not-for-profit status where appropriate; and
• this policy direction should be accompanied by technical assistance, transitional funding, and capacity-building supports for organizations taking on new roles.

3. Continue to strengthen workforce recruitment and retention

Nova Scotia has made substantial progress through the introduction of a provincial wage scale, sector-wide benefits, and a defined benefit pension plan. Additional measures are needed to address persistent shortages, particularly in infant programs, family home child care, and rural communities.

Priority actions include:

• expanding bursaries and tuition supports;
• strengthening mentorship for new educators;
• supporting internationally educated and newcomer educators;
• providing targeted recruitment incentives for rural and underserved areas; and
• ensuring school-age educators are included in the wage scale and that eligible hours count toward pension participation.

4. Fully implement and monitor the new operational funding model

The province should continue refining the new operational funding model to ensure it reflects the actual costs of delivering high-quality care across diverse settings, with input from operators and sector organizations.

Particular attention should be paid to:

• variations in occupancy costs;
• higher costs associated with infant care;
• inclusion supports;
• low capped parent fees;
• rural and small-centre operating realities; and
• the administrative costs of multi-site organizations and family home child care agencies.

5. Expand and stabilize capital funding

Nova Scotia should maintain and strengthen its Minor and Major Infrastructure Programs and provide predictable, multi-year capital funding for not-for-profit and public providers.

Priority should be given to:

• publicly owned facilities;
• projects in underserved communities;
• infant and toddler spaces;
• school- and municipality-based projects; and
• renovations and expansions of existing facilities.

Consideration should also be given to increasing per-space capital grants in high-cost regions where current funding may not fully cover development costs.

6. Strengthen regional and community-based planning

The province should move beyond an application-driven approach to expansion and develop a more proactive regional planning process grounded in:

• demographic trends;
• maternal labour force participation;
• waiting list and inquiry data;
• equity indicators; and
• community consultation.

This planning should involve municipalities, Regional Centres for Education, Francophone organizations, and major not-for-profit operators.

7. Deepen partnerships with municipalities and public institutions

Nova Scotia should build on successful partnerships with municipalities, universities, colleges, and community organizations that provide land, facilities, and operational support.

The province should:

• create incentives for municipalities to contribute land and facilities;
• formalize child care as a component of local economic development planning;
• encourage co-location in schools and public buildings; and
• support post-secondary institutions that operate child care and train future educators.

8. Strengthen family home child care

Family home child care should be treated as a core component of the provincial expansion strategy, particularly for infants, rural communities, and families requiring flexible hours.

Recommended actions include:

• reviewing fee structures to ensure providers receive adequate compensation;
• aligning agency funding with the number of children served rather than the number of homes;
• continuing and expanding start-up grants;
• increasing recruitment and mentoring supports; and
• simplifying policies to improve consistency across agencies.

9. Develop a comprehensive strategy for school-age child care

Nova Scotia should develop a dedicated policy and funding framework for school-age child care, including the BAP.

The strategy should address:

• affordability for families;
• compensation and pension eligibility for staff;
•  program availability on professional development days and school closures;
• inclusion supports; and
• stronger integration with the broader ELCC system.

10. Strengthen inclusion supports

The province should expedite development and implementation of its inclusion strategy to ensure that children with disabilities and additional support needs can fully participate in licensed child care.

This should include:

• enhanced staffing supports;
• specialized training;
• access to consultation services; and
• funding that reflects the true cost of inclusion.

11. Rebuild sector infrastructure and professional supports

Recent closures of the Association of Early Childhood Educators of Nova Scotia and the Early Years Professional Learning Support Sites have created serious gaps in professional development and sector leadership.

The province should:

• provide stable core funding for sector organizations;
• restore regional professional learning and resource hubs;
• support communities of practice and mentorship; and
• ensure educators continue to have access to high-quality professional development.

12. Improve data systems and public reporting

Nova Scotia should continue to strengthen data collection and reporting on:

• wait lists and unmet demand;
• workforce supply and turnover;
• expansion progress;
• access for equity-seeking groups; and
• financial sustainability.

Public reporting should be regular and transparent to support accountability and informed planning.

Appendix A: Overview of key child care organizations and groups in Nova Scotia

The Association of Early Childhood Educators of Nova Scotia

The Association of Early Childhood Educators of Nova Scotia (AECENS), the provincial professional association representing early childhood educators (ECEs) in Nova Scotia was established in the 1960s. It provided a collective voice for educators working in licensed child care, family home child care agencies, and, more recently, Pre-Primary programs.

AECENS, a membership-based not-for-profit organization, was governed by a volunteer board of directors and supported by committees. At the time of the case study visit, its strategic priorities focused on strengthening communities of practice, mentoring educators, and celebrating the diversity of the workforce. The Association provided professional development opportunities, networking, advocacy, and communications to members, primarily through online events, social media, and electronic newsletters. Although membership was modest relative to the total workforce, the organization remained an important forum for professional dialogue and policy engagement.

Historically, AECENS played a significant role in professional recognition and training pathways. In the early 2000s, the Association administered a Recognition of Prior Learning process that enabled experienced but uncredentialed educators to have their knowledge and experience assessed toward formal ECE qualifications. This initiative was particularly important at a time when many experienced practitioners lacked recognized credentials. Over time, responsibility for prior learning assessment shifted to post-secondary institutions and government-supported accelerated diploma programs, including the PLAR programs now offered by the Nova Scotia Community College and the Nova Scotia College of Early Childhood Education.

The Association dissolved in early 2026 due to lack of funding.

Child Care Now Nova Scotia

Child Care Now Nova Scotia is a provincial chapter of Child Care Now, Canada’s national child care advocacy coalition. It advocates for a publicly funded, inclusive, quality, not-for-profit child care system. It undertakes research, public education, and advocacy, and organizes events, campaigns, and community mobilization efforts to raise awareness and advance policy change in support of children, families, and early childhood educators. 

The Family Home Child Care Association of Nova Scotia

The Family Home Child Care Association of Nova Scotia is a provincial organization representing Nova Scotia’s licensed family home child care agencies. The Association provides a forum for agencies to collaborate on policy and operational issues, share promising practices, and advocate collectively with government. Its members recruit, approve, and support family home child care providers, offer professional development and resources, and connect families with regulated home-based care. The Association advises government on policies affecting family home child care, including fee structures, provider compensation, start-up grants, and recruitment and retention strategies. 

The Nova Scotia Non-Profit Directors Association

The Nova Scotia Non-Profit Directors Association is a membership-based network of executive directors and senior managers of not-for-profit child care organizations across Nova Scotia. Established to provide peer support and a collective voice for the not-for-profit sector, the Association has grown significantly since the introduction of the CWELCC agreement. As of 2026, it includes approximately 40 members, representing about half of Nova Scotia’s not-for-profit child care organizations. The Association meets monthly to share operational information, identify emerging issues, and develop common policy positions. It also meets regularly with officials from the Department of Education and Early Childhood Development to provide feedback on funding, workforce initiatives, and expansion policies. Its primary focus is advocacy to strengthen the role of not-for-profit organizations in the development of a publicly funded early learning and child care system. 

Acknowledgements

The ideas, views and opinions in this publication belong to the author(s). They may not reflect those of the Government of Canada.

1. For the full 2026 wage scale, see Early Childhood Educator Wage Rates.  ↩︎
2. Classification as an ECE Level 1 typically requires a one-year certificate in ECE from a recognized training program; an ECE 3 requires either a bachelor’s degree in ECE, or a two-year diploma in ECE and a bachelor’s degree in any discipline. ↩︎
3. For further information see Child Care Now’s brief: Nova Scotia Pension Plan ↩︎
4. Child Care Now (2026). Nova Scotia budget 2026-27 cuts force closure of early years professional learning sites, https://childcarenow.ca/2026/04/22/nova-scotia-budget-2026-27-cuts-force-closure-of-early-years-professional-learning-sites/ ↩︎
5. EYDCDC (2026) EYCDC final newsletter. https://eycdc.nscece.com/blog/eycdc-newsletter-march-2026  ↩︎
6. For further details see: ECE diploma for family home providers ↩︎
7. Source of data in Figures 1 – 5: Friendly, M., Beach, J., Aruran, G., Cossette, A., Hu, L., Lillace, J., & Forer, B. (2026). . Childcare Resource and Research Unit.  ↩︎
8. School-age spaces include those in the BAP, which primarily serves children attending Pre-Primary and Grade Primary, but which may serve children up to age 12. These spaces are all located in schools and delivered by not-for-profit operators. They are not licensed, but are approved, and eligible families may receive a fee subsidy.  ↩︎
9. Descriptions of the Family Child Care Agency Association, Association of Early Childhood Educators Nova Scotia, Child Care Now Nova Scotia, and the Non-Profit Directors Association are included in Appendix A. ↩︎
10. See The price is not right (yet): $10-a-day child care falling short of target for further details  ↩︎

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