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Child Care ConnectionsAttracting and Keeping Qualified Staff in Child Care Project

Review of the Issue ofRecruiting and Retaining Qualified Child Care Staff

in Quebec

Camille Gariépy, ProfessorDepartment of Early Childhood Education Techniques

Collège de Saint-JérômeAuthor

Co-written and revised by:Lyne Gariépy

January 2003

AcknowledgmentsI would like to thank my colleague Monique Laprise, who collected the information regarding consultationinitiatives between the government and training institutions. Her on-going involvement in several differentcommittees and round tables meant that she was a most appropriate and appreciated collaborator.

Research & Data Collection:Monique LAPRISE, Professor, Department of ECET, Collège de Saint-JérômeWork groups in which Monique was involved:• Member of the Board of Directors of the AEETESG, (Cégep St-Jérôme Representative)

1999–2000: Secretary2000–2001: President

• Partners’ Round Table, (AEETESG Representative)Fall 1998 to summer 2001

• Work on prior learning assessment (under JEE-OC), AEETESG Representative• Expert Consultant for Cégep St-Jérôme: “expression creativity”

Fall 1999 to winter 2000• CCFD (Cours formation à distance), AEETESG Representative (bargaining phase)

Expert consultant and author (in collaboration with Cathy Willows)• Cégep St-Jérôme: “creative ability in the work place”, 2000–2002• Round Table on On-going Training (to implement AEC JEE-0K), AEETESG Representative• Coordinator, On-going Training, Cégep St-Jérôme, Expert consultant

2000–2001

Child Care Connections gratefully acknowledges the funding support of Child, Family and Community ofSocial Development Partnerships of Human Resources Development Canada. The views expressed do notnecessarily reflect those of Human Resources Development Canada.

Review of the Issue ofRecruiting and Retaining Qualified Child Care Staffin QuebecbyCamille Gariépy, Professor

Table of contents1.Review of the specific issue in Quebec 4

1.1 History and evolution of child care services 41.2 Developing services within the context of the implementation

of a new family support policy 51.3 The objectives of the new Family Policy 61.4 Structure and mission of early childhood centres (ECC) 61.5 Reduced enrolment fees ($5) 71.6 Steering committee on CPE’s 7

2.Difficulties in recruiting and retaining staff 82.1 Development of early childhood education services with reduced fees 82.2 Recruiting difficulties due to growth in services 92.3 Social recognition and wages for child care professionals 102.4 Career opportunities (mobility, advancement, promotions) 112.5 Work Conditions 13

3.Government initiatives to promote recruiting 133.1 Training requirements and staff classification for CPE’s 133.2 Impact of training requirements on recruiting and actions taken 14

4.Sector-based initiatives 174.1 Role and initiatives of regional groups 174.2 Role and initiatives of unions 184.3 Role and initiatives of training institutions 19

5.Approaches and strategies for recruiting and retaining child care staff 215.1 Conditions for retention 215.2 Significance of managerial skills 22

6.A model to promote staff retention: Educational management & in-serviceprofessional development 236.1 Characteristics of an educational child care service 236.2 Professional development and educational management 236.3 The necessity of situational diagnosis 25

Conclusion 26

4./ Gariepy, C./Review of the Issue of Retention & Recruitment in child Care In Quebec/2003

Review of the Issue ofRecruiting and Retaining Qualified Child Care Staff in QuebecByCamille Gariepy, co-written and revised by Lyne Gariepy

Review of the specific issue in Quebec

1.1 History and evolution of child care servicesThe issue of recruiting and retaining child care staff is probably a universal one. In each province orterritory, however, the population’s educational and social values and the specific circumstances of thedevelopment of child care services result in a different approach to deal with the issue. The goal of thiscase study is to present the Quebec approach, and to highlight the effect and impact of the recentexpansion of child care services. Our purpose is not to provide a comprehensive history of child careservices in Quebec, but rather a review of the current situation. (The major events in the history of familypolicy and their impact on the development of child care services in Quebec are outlined in the footnotebelow1.) Our review will begin from the perspective of the provincial government’s implementation of a new

1 Edited from <www.mfe.gouv.qc.ca>, L’historique de la politique familiale - Son origine - Les plans d’action en matière

familiale :As early as 1981, in consultation with Quebec’s major groups of family organizations, the Quebec government developed,through its Comité interministériel sur la famille (Interdepartmental Committee on Family Issues), its Livre vert sur la politiquefamiliale (Green Book on Family Policy), published in 1984. This publication provided an opportunity for a large consultationprocess held in 1984–85, with 3,000 individuals and groups concerned with family issues.As well, in 1984, the government created the Secrétariat à la politique familiale (Secretariat of Family Policy), which laterbecame the Secrétariat à la famille. The Secrétariat was responsible for designing the Family Policy, organizing itsimplementation, and coordinating efforts made to account for the realities of family life in all the policies and areas for actionof the government: economic support and tax relief, housing, labour organization, family/school relations, health and socialservices, family rights, justice and safety, recreation and culture, etc.Quebec drew largely from the results of the 1984–85 consultation process in its Statement of Orientation on Family Policy,published in 1987. The document reflected a large consensus still prevalent in Quebec society and stated the government’sobjectives: to recognize the family as a fundamental collective value; to contribute to family cohesiveness and stability whileconsidering the diversity of family realities; to support parents as the individuals primarily responsible for child care.These directions in government policy took shape with the adoption of three family action plans, which were implementedbetween 1989 and 1997. In addition, in 1988, the government created the Conseil de la famille, whose primary mandate wasto advise the minister responsible for family matters on family issues.The Family Action Plans:The first action plan covers the 1989–1991 period. Its implementation by the various departments and governmentorganizations involved was coordinated by the Secrétariat à la famille, and enabled the government to index all financialsupport programs regarding children, amend the Loi sur les normes de travail (an Act regarding Labour Standards) in orderto allow working parents to benefit from longer leaves during a child’s birth or adoption, and create over 6,000 spaces peryear in child care services.The second action plan covers the 1992–1994 period. Family organizations and the Conseil de la famille were consulted onthe orientations of the second plan, then on actions proposed by departments and governmental organizations. Actions thatwere adopted include the implementation by the Department of Health and Social Services of support services frompregnancy to the 24th month after birth and parental support services throughout early childhood, as well as the signing ofagreements between local community service centres and the Office des services de garde à l’enfance (Office of Child CareServices) for the implementation of an early intervention and stimulation program in economically disadvantagedenvironments.The third plan covered the 1995–1997 period. It was developed in 1994 as part of the International Year of the Family, incollaboration with over 200 individuals representing over 60 community, socioeconomic and government organizations. Theaction plan included 371 commitments involving one participant or an other. Several of these commitments are recurring and


Family Policy, which led to a major reform of services in 1997. We will review the effects andconsequences on staff recruitment and retention.

1.2 Developing services within the context of the implementation of a new familysupport policyIn the fall of 1996, the Government of Quebec announced three new provisions in the area of familysupport:• the implementation of a new family benefit, which replaced or modified certain programs which were

then in place and which would vary depending on the family situation (single-parent or two-parentfamily), family income and the number of children;

• the development of early childhood education and services, ensuring:− access to full-time kindergarten for children aged 5 or to half-time kindergarten or early childhood

education services for children aged 4 who are disabled or come from an economicallydisadvantaged environment,

− gradual access to early childhood education care for children younger than 5 at minimal cost,− access to child care services in a school environment for kindergarten and primary-level children at

minimal cost;

• the implementation of a new Parental Insurance Plan intended to cover the greatest part of the parent’sincome during maternity and parental leave.

In 1997, the government tabled a bill implementing these provisions. In addition, it created the Departmentof Family and Childhood (Ministère de la Famille et de l’Enfance, hereafter MFE), as a way to mark a newera for family and child services.

will continue in the coming years. The commitments made by the various partners under the third action plan, as well as twoof the three new provisions implemented by the government, cover four major areas for action: prevention, balancing workand family, financial support for families, and improving living environments for families.With respect to prevention, the actions mostly addressed the following:- infant development, notably with the implementation of educational services;- early identification of problems in development or growth;- improving parental skills;- increasing the father’s involvement in his children’s education;- preventing domestic and family violence.With respect to balancing work and family, the actions addressed the following items, among others:- implementing diversified child care services;- raising the level of awareness of teenagers and young parents regarding equitable sharing of domestic duties and child

care;- promoting successful experiences in balancing work and family.With respect to financial support for families, the actions more specifically addressed the following:- increasing the help provided to low-income families;- ensuring that alimony payments are made;- establishing a replacement program for work income during maternity and parental leave, which would provide better

protection than the programs currently in place and be better adapted to the current work context.With respect to improving living environments for families, the actions included:- improving housing accessibility for families;- valuing solidarity between families;- emphasising the family dimension in services provided, including social, cultural, recreational and health services.


1.3 The objectives of the new Family PolicyThese provisions reflect the government’s desire to modernize and adapt its policies and programs to theevolution of Quebec society. They are designed to respond to the wishes and demands expressed byfamily support organizations, child care services, representatives from women’s groups and other peoplerepresenting Quebec citizens. In addition, the provisions are based on a fundamental principle thatrecognizes the parents’ primary role in their child’s development and the supportive role given to the State.The updated Family Policy realizes this principle through three major goals:

• to ensure equal services to all by providing more support to low-income families, all the whileensuring universal support;

• to help parents in dealing with both their parental and professional responsibilities;• to foster child development and equal opportunities for children.2

1.4 Structure and mission of centres de la petite enfance (CPE)Since 1997, the MFE has implemented a network of early childhood centres (centres de la petite enfancehereafter CPE), based on existing not-for-profit child care centres and family-based child care services.Quebec’s child care services now include 935 CPE’s, which are responsible for 1042 child care facilitiesand, of the 935 CPE’s, 676 centres currently manage a family-based component. In principle, every ECCshould provide both kinds of services (diversification requirement). In other words, a single ECC mayinclude one or several child care facilities and coordinate the work of a number of individuals in charge offamily-based child care services (a.k.a. child care service providers or CCSPs). The facilities and family-based services, however, must comply with standards for maximum enrolment depending on the specificcontext of each ECC. But no ECC, regardless of context, may exceed a combined total of 350 spaces forchildren. The following graphic illustrates these standards:

Maximum 80 per unit Maximum 9 per unit

2 Edited from <www.mfe.gouv.qc.ca>, La politique familiale - Les principales mesures - Les objectifs.

FAMILY-BASED SERVICE(S)Maximum Enrolment = 250

CPE Maximum

Enrolment =350CHILD CARE FACILITY(IES)

Maximum Enrolment=240


The CPE’s are regulated by the Loi sur les centres de la petite enfance et autres services de garde àl’enfance (an Act regarding Early Childhood Centres and Other Child Care Services). Each ECC isoperated by a not-for-profit body corporate or a cooperative whose board of directors includes a majority ofparents.

In order to better meet the needs of parents, CPE’s offer or will gradually offer full-time or part-time childcare services, in child care facilities or in family-based services, as well as child care services in theevening, at night, or during week-ends, wherever there appears to be a need for such services. They alsooffer or will offer educational activities and other family services: parental support, help and counsellingservices, etc. In addition, the CPE’s provide an environment that fosters prevention and identification ofpotential developmental or social problems. The centres accommodate children from birth to kindergarten,as well as kindergarten and school-age children who are attending a school that doesn’t offer child careservices or have special needs that can be met by an ECC. In CPE’s, each child is provided with aneducational program that is based on a total child development approach and on play, and is adapted tohis/her age and to the amount of time spent in the centre. Such services are provided by educators who arerequired to embrace and apply this compulsory program.

1.5 Reduced enrolment fees ($5)In 1997, consistent with the aforementioned goal of equal services for everyone, the governmentimplemented a universal program of early childhood education services with reduced enrolment fees($5/day for each child). The implementation was completed gradually: children aged 3 and 4 were the firstones to benefit from it. It has now been extended to children aged 2 and infants. For a $5 fee, earlychildhood education services extend over a maximum period of 10 hours per day, 261 days per year. Ameal, two snacks, and the materials required for the implementation of the educational program areincluded every day for the child throughout this period. Services are or will be gradually offered through aflexible schedule, in order to better meet the needs of the child’s parents. They may also includespecialized services provided in collaboration with social organizations or other partners. As well, CPE’sare intended to provide parents and educators with opportunities for idea-sharing and mutual help.

1.6 Steering committee on CPE’sWhen the government introduced this reform, it had not anticipated all the implications and consequencesof transforming the existing network of centres. There were strong responses to the government’srequirements with respect to the adaptations and compliance with the act and the regulations regardingearly childhood centres and other child care services. In order to better understand the implications andresistance from child care stakeholders, the government suggested that a steering committee on CPE’s(Comité d’orientation sur les CPE) be created. This committee enables the Department to link with variousstakeholders involved in developing child care services and Quebec’s Family Policy.3 During its meetings,

3 Comité d’orientation sur les CPE. The committee includes representatives from:


the Department provides information or solicits advice from participants on various topics relating to childcare services. The Comité d’orientation provides opportunities for information exchanges where eachstakeholder tries to influence the Department based on his or her own expertise on the topics discussedand where the Department tries to demonstrate the appropriateness of its decisions. The meetings takeplace in an atmosphere of collaboration rather than confrontation, and this means that everyone canexpress their views, however divergent their orientations might be.Last fall, the changes made to the regulations regarding CPE’s and child care centres provided the bulk ofthe Comité d’orientation’s work. These changes were obviously also an opportunity to address the trainingrequirements for educators.4

2. Difficulties in recruiting and retaining staff

2.1 Development of early childhood education services with reduced fees5

The government’s objective is that 174,000 spaces with reduced enrolment fees be made available by April2004.Number of spaces created and to be created:

2001: 133,250 spaces available2002: 146,600 spaces available (target: 145,750)2004: 174,000 spaces to be made available

In order to implement a revised plan for the creation of spaces in early childhood education, theDepartment had established a target of 12,500 new spaces to be created in 2001–2002. The objective wasmore than achieved, since 13,350 spaces were actually added in early childhood education services, for atotal of 84,407 spaces in facilities or child care centres and 62,193 spaces in family care servicescoordinated by CPE’s, i.e. a grand total of 146,600 spaces.

- Concertation interrégionale des CPE du Québec and Fédération des CPE du Québec,- Association des garderies privées du Québec,- CSN and Fédération des intervenants en petite enfance du Québec, CSQ,- Association des éducateurs et des éducatrices en milieu familial du Québec,- Association du personnel cadre des CPE du Québec,- regional offices of health and social services,- Association des régions du Québec,- Association des CLSC et des CHSLD du Québec,- Confédération des organismes familiaux du Québec,- Fédération québécoise des centres communautaires de loisirs inc.,- Chantier d’économie sociale,- Regroupement inter-organismes pour une politique familiale au Québec,- Fédération québécoise des organismes communautaires Famille,- Fédération des associations de familles monoparentales et recomposées du Québec.

4 Taken and adapted from a text requested from Mrs. Monique Laprise, Department of ECET, Collège St-Jérôme, in January2003. Source: Johanne Fournier (AEETEE), member of the committee since September 2002, replacing Francine Godin,who sat on the committee for two years.

5 Taken and adapted from the MFE’s Annual Report for 2001–2002.


Evolution of number of spaces in child care services from 1997–1998 to 2001–2002:Year Spaces in

CPE’s (family-basedcomponent)

Spaces in CPE’s(facilities) andchild care services

Total number ofspaces in childcare

Number ofspaces created

1997-1998 21,761 60,541 82,302 3,4381998-1999 32,816 63,882 96,698 14,39611999-2000 44,882 69,671 114,553 17,85512000-2001 55,979 77,271 133,250 18,69712001-2002 62,193 84,407 146,600 13,3501

It should be noted that, as of March 31, 1997, the total number of spaces in child care services was 78,864.Since then, 67,736 new spaces have been created. The number of spaces has almost doubled in fiveyears.

2.2 Recruiting difficulties due to growth in servicesBefore 1997, the job placement rate for college graduates in Early Childhood Education Techniques wasclose to 95 percent, i.e. nearly full employment! With the increased development in the past five years,approximately 50 percent of the spaces were created in CPE’s, for which training requirements have gonefrom one educator out of three to two educators out of three.

1997-200250% of newspaces

Average rate of 1 educatorfor 8 children

Training requirements 2trained educators out of 3

33,868 spaces 4,233 positions required Approximately 2,822 trainededucator positions

These approximate numbers are very telling: recruiting difficulties are experienced on a daily basis.Training institutions are unable to meet the demand generated by the increased development of CPE’s. Ifthe Department maintains the target for new spaces to be created annually at 12,500 until 2006, then it willbe very hard to meet the needs created by such a target. The situation is made even worse by the fact thatone third of current ECC staff members are expected to quit their jobs and that the implementation of thepension plan scheduled for April 2003 will cause many educators aged 55 and over to quickly retire.

Based on the average rate of 1 educator for 8 children, and considering the number of spaces offered(146,600 – see table on next page), the network currently employs approximately 18,300 educators andchild care service providers (CCSPs).6 If all these people were employed by the same employer, it wouldbe one of the five largest employers in Quebec. We know that this is not the case, since each corporation isindependent. At this time, recruiting difficulties are of higher concern to these employers than staff retentionstrategies. But we are coming to a difficult crossroads: attracting new educators is still an issue, and, sincethe number of currently employed educators that still need to be trained is almost nil, it will be very difficultto fill the positions while maintaining current training requirements. In addition, since there is a very highnumber of new child care facilities currently under construction or that will be under construction in 2003–2004, higher inter-service mobility is to be expected. In other words, employers will end up having to

6 . Responsables de service de garde en milieu familial (RSG).


concern themselves with the issue of retaining qualified staff as well. We will address this point againfurther on.

2.3 Social recognition and wages for child care professionals7

On May 21, 1999, the government announced important wage increases for all child care staff membersand family care providers in Quebec. The implementation of these increases, which have been spread overthe past four years, required all CPE’s in Quebec to classify their staff within the wage scales adopted bythe government, with the help of the Department’s Operational Guide for Wage Increases in EarlyChildhood Centres. As of April 1, 2002, the basic wage rate for Category 1 educators was $13.59/hr. ForCategory 5 educators, it was $15.39/hr, and for staff members with more than 10 years of recognizedexperience8, it was $18.00/hr. The average increase was more or less 30 percent, with minor variationsdepending on the category. The wage scale progression is known until March 31, 2003. The governmenthas yet to publish its targets for wages in the coming years. Following this wage increase, a catch-up wageincrease intended to bring educators on par with other human/social technicians should be the next issuefor negotiators representing child care workers.

The recent wage increase in child care services is deemed to have had a positive impact on staff retention.It would be interesting to conduct studies in Quebec on the possible relation between the gradual wageincrease and the decreasing rate of people leaving the profession. As well, since an occupation’s socialrecognition is strongly related to its income levels, recognition should also be increasing and we hope thatthis will have a positive impact on recruiting. The shortage of staff created by the extraordinary expansionof child care services, which is already having an impact, will not be fully addressed by better wages andbetter social recognition for the profession — but these factors will definitely contribute to attracting moreyoung people to early childhood education.

7 See: Règles administratives concernant la classification et la rémunération du personnel des centres de la petite enfance,

MFE, Government of Quebec, April 2000, 41 p.8 A member of the teaching staff is deemed qualified once she has completed a training program recognized by the Règlement

sur les centres de la petite enfance (Sections 17 and 18). Under the regulations, only the college diploma in Child CareEducation Techniques (now Early Childhood Education Techniques) and a few other equivalent training programs aredeemed eligible. Other training programs can only be eligible if they are combined with years of relevant experience.As an example, an educator who has obtained an ACS (Attestation of Collegial Studies) in CCET or a university certificate inearly childhood education and has three years of relevant experience will be classified at the first level in the wage scale fortrained educators. She will then climb up the scale, at a rate of one level per additional year of relevant experience. Thus, aneducator with an ACS in CCET or a university certificate in early childhood education and seven years of relevant experiencewill be classified at the fifth level in the wage scale for trained educators. Finally, this educator will accumulate and bring withher this experience to any ECC in which she might hold an educator’s position.


Regional Distribution of Early Childhood Centres and Child Care Services, as of March 31, 2002 1

REGIONS EARLY CHILDHOODCENTRES

CHILD CARE CENTRES TOTAL – FACILITIES ANDCHILD CARE CENTRES

GRAND TOTAL – FACILITIES, CHILD CARECENTRES AND FAMILY CARE SERVICES

INSTITUTIONS FACILITIES FAMILY CARERegions # # of

spaces# of child carecomponents

# ofspaces

# of familycarecomponents

# ofspaces

# of for-profit childcarecentres

# ofspaces

Total # ofchild carecentres

# of spaces # ofchildcarecentres

# of spaces

01 Bas-Saint-Laurent 23 3,610 23 1,094 19 2,516 0 0 23 1,094 42 3,61002 Saguenay–Lac-Saint-Jean 32 4,554 33 1,835 28 2,719 7 284 40 2,119 68 4,83803 Capitale-Nationale 100 11,513 111 5,990 77 5,523 41 1,834 152 7,824 229 13,34704 Mauricie 33 4,362 38 1,926 29 2,436 2 140 40 2,066 69 4,50205 Estrie 51 6,103 59 2,868 42 3,235 4 245 63 3,113 105 6,34806 Montréal 255 25,571 278 17,184 118 8,387 224 12,658 502 29,842 620 38,22907 Outaouais 47 6,649 50 2,850 33 3,799 6 278 56 3,128 89 6,92708 Abitibi- Témiscamingue 18 2,623 18 1,063 16 1,560 1 37 19 1,100 35 2,66009 Côte-Nord 19 1,809 17 730 12 1,079 0 0 17 730 29 1,00910 Nord-du-Québec 27 1,520 28 1,322 3 198 1 20 29 1,342 32 1,54011 Gaspésie–Îles-de-la-Madeleine

12 1,776 12 524 11 1,252 1 20 13 544 24 1,796

12 Chaudière-Appalaches 43 6,809 55 2,532 41 4,277 12 548 67 3,080 108 7,35713 Laval 38 5,385 37 2,204 27 3,181 37 2,096 74 4,300 101 7,48114 Lanaudière 35 6,250 44 2,463 35 3,787 26 1,276 70 3,739 105 7,52615 Laurentides 49 7,188 49 2,735 47 4,453 18 1,098 67 3,833 114 8,28616 Montérégie 130 21,163 158 9,519 118 11,644 90 5,062 248 14,581 366 26,22517 Centre-du-Québec 23 3.833 32 1,686 20 2,147 5 286 37 1,972 57 4,119TOTAL 935 120,718 1042 58,525 676 62,193 475 25,882 1,517 84,407 2,193 146,600

*The total number includes child care services whose license owner is a for-profit business as well as services whose license owner is a municipality, a school board, or a not-for-profit organization whose boardof directors includes a majority of parents. END NOTES AND REFERENCES:1 Rapport annuel de gestion 2001-2002, MFE, Government of Quebec, Les Publications du Québec, Sainte-Foy, 2002, p. 50.


2.4 Career opportunities (mobility, advancement, promotions)With the advent of CPE’s, the number of supervision, support, and human resource development positionshas mushroomed. In the new CPE’s, depending on the level of diversification and multiplication of services,management structures are evolving. Supervision, support, and human resource development positionscan vary from centre to centre and include:

- Team Leader – She often is an educator who provides three to 12 hours of technical or trainingsupport in addition to her work with children.

- Educational Consultant (in facility or family-based service) – A merged part-time position or full-time position, depending on the number of spaces granted to the licensee.

- Facility Coordinator or Manager – A Level 1 managerial position with (non-union member) orwithout (union member) a relationship of subordination with the child care staff.

- Family Care Manager – A Level 1 or 2 executive position. The manager is responsible for CCSPrecognition and often provides training support to the CCSPs.

- Director of Educational Operations (in an ECC) – A Level 2 executive position. The director isusually responsible for educational operations in the facility and family care components.

- Director of Administrative and Financial Resources – A Level 1 or 2 managerial position,depending on the level of authority and power delegated by the Executive Director. Level 2positions are more common in larger CPE’s.

- Executive Director – A Level 2 or Level 3 senior executive position, depending on the centre’slevel of diversification.

These positions combine into a flexible organizational structure and depend on the level of competence ofplanners/administrators and their vision in terms of managerial needs and needs in administrative andeducational support.

In any case, with this new range of positions, the trained educator may be offered an EducationalConsultant position, either in a facility or in a family care environment. Some will become Level 1managers, i.e. assistant directors responsible for educational operations in a facility or family careenvironment.

Educational Consultant $18.90/hrHighestlevel Assistant Director, Educational Operations $19.80/hr

Several educators are offered such a position in an ECC other than their existing centre and their seniorityas child care workers is recognized. They may also eventually access executive positions, with highertraining requirements. Their seniority as child care workers is then not necessarily recognized, but basicwage scales for such positions do compensate for that lack of recognition. The minimum and maximumentrance wage levels for Level 2 and Level 3 managers are:

Level 2 ManagerDirector, Administration or Education

Level 3 ManagerExecutive Director, ECC

2002-04-01 2002-04-01Minimum $33,047/yr Minimum $36,362/yrMaximum $43,754/yr Maximum $48,134/yr


Such opportunities for internal and external promotion to executive positions did not exist before and areprobably rare outside Quebec. The opportunity to access such positions is a positive factor for recruitingand retaining applicants with managerial potential. They are motivated by these opportunities. It is nowpossible to have a career in child care!

2.5 Work ConditionsWages are now uniform throughout Quebec, since CPE’s have now received the necessary grants to offerprescribed wage levels. The remaining disparities and inequalities can be found in non-wage-related workconditions and other social benefits. The government does not intend to rule on these conditions, sinceCPE’s are private corporations that retain governance over their staff. Educators enter into workagreements that are individual or collective, oral or written, and the majority of them are not unionized.Some of them benefit from favourable conditions, while others experience very difficult conditions. Thequality of their work conditions essentially depends on the managerial “competence” of their organization’sexecutive staff, on their administrative policies, managerial styles, and the organizational culture of thecorporation, which may promote or hamper the well-being of its staff.

The progress made in wages, a more positive social recognition for the profession, and better opportunitiesfor promotion are already having an impact on the issue of recruiting and retaining staff. The system nowneeds to deal with other work conditions, the organizational environment, and quality of life in the workenvironment. Since they can not be standardized, due to their close relation to the managerial competenceof the executive staff, it is the managerial competence itself that needs to be improved. We will address thispoint again later on.

3. Government initiatives to promote recruiting

3.1 Training requirements and staff classification for CPE’sUnder the authority of the MFE, specialists in early childhood education and communication have workedon a vast campaign to promote and increase recognition of the profession , entitled “Besoin de toi” (“Weneed you”). They were also asked to provide a synthesis of the directions and expectations of thegovernment and other stakeholders. Their report introduces a point of view that is based on a modifiedpicture of the operational context for the educator’s work; it includes the three components of the educator’srole9: the educational component, the social component, and the primary care component 10. 9 Taken and adapted from the “Besoin de toi” communication kit, MFE, January 2000.10 Educational Role – A complex role involving play in which educators provide a variety of relevant activities that cover, over

days, all aspects of total child development: language, cognitive, creative, psychomotor, emotional, and social spheres.Facilitating groups of children makes this role more complex than a simple matter of being available and playing with a singlechild. In order for children to develop harmoniously, the educator needs to plan, organize, facilitate, and evaluate group,small group, and individual activities. Common activities as well as games are used to create a stimulating learningenvironment.Social Role – Early childhood educators work in a preventive fashion with children with major difficulties in their familyenvironment. Identifying and protecting affected children requires a team approach with other stakeholders in the child careservice and in social services. Educators also have a specific role to play in integrating children with special needs:handicapped children, children with social adaptation problems, children newly arrived in Quebec. This social role coversinteractions not only with children but also with adults: communicating with parents, managing meetings or services with staffmembers and partnerships with stakeholders in other networks.Primary Care Role – This role is associated with essential, often repetitive duties that include an educational dimension.Changing diapers, washing, feeding, rocking infants, providing first aid care, etc. are also emotional acts. Early childhood


The regulations regarding early childhood centres and other child care services provide that at least two outof three child care staff members in an ECC facility must have the required qualifications. At a minimum,every person employed by an ECC who cares for children should be aged 18 or over and hold a certificateindicating that she has completed a Standard First Aid course of at least 8 hours. Two qualified persons outof three must be present during 70 percent of daily operating hours. These requirements were introduced inSections 17 to 20 of the regulations. In the case of for-profit child care services, the requirement is oneeducator out of three, during 55 percent of daily operating hours.

Those child care service providers (CCSPs )11 that are recognized by their CPE must meet the conditionsrequired to obtain recognition12 and are subject to qualification requirements other than those of child carestaff in facilities and child care services. In addition to a Standard First Aid course of at least 8 hours, theymust complete a training program of at least 45 hours, including at least 30 hours on child development andeducational programs, before the second anniversary date of their recognition. They must then continue tocomplete 6 hours of professional development every year. Their assistants must complete a Standard FirstAid course of at least 8 hours and, during their first year of employment, they must complete at least 12hours of training on child development13.

Training requirements for childhood educators can thus be found somewhere between no requirements atall and the equivalent of a college diploma in Early Childhood Education Techniques. In other words, thechild care professionals in recognized services have diverse and highly disparate profiles, even though theyare all, in principle, expected to play social and educational roles in addition to providing primary careservices. It is obvious that their highly disparate levels of training cannot ensure uniform provision ofservices.

3.2 Impact of training requirements on recruiting and actions takenIn 1998, the Ministère de la Famille et de l’Enfance (MFE) was alarmed by the data collected from CPEdirectors regarding the difficulty experienced in recruiting and retaining qualified educators. In addition,CPE directors indicated that they were concerned about their ability to meet the new regulatoryrequirements regarding the number of qualified educators expected to be present with children as ofSeptember 1999. Indeed, the regulations provided that, as of September 1999, two educators out of three 14

must be qualified. After having compiled the numbers of qualified educators available in the network andthe numbers of potential graduates in Early Childhood Studies (ECS) programs for the entire province, theMFE acknowledged that actions were urgently needed. In co-operation with stakeholders involved ineducator training, the MFE soon realized that multiple factors affected the issue:

educators need to demonstrate attitudes that foster the development of a warm rapport with children, by talking to them,sharing knowledge, being perceived as role models, developing healthy habits in children, working on the children’s self-esteem in their endeavours and successes. The quality of the interpersonal relationship with the child depends on theeducator’s ability to be fully present and available while providing care.

11 . Les responsables de services de garde en milieu familial(RSG)12 Règlements sur les centres de la petite enfance et autres services de garde, Sections 40 to 43…13 Règlements sur les centres de la petite enfance et autres services de garde, Sections 44 to 47…14 The nature of this qualification is prescribed in Sections 17 and 18 of the Règlements sur les centres de la petite enfance et

autres services de garde.


- Young people who might be attracted to the profession were discouraged even before starting theirstudies due to the lack of recognition of the profession and to the deplorable work conditions(including wage levels) in the network.

- Not all graduates seek employment in a child care facility (CPE). Some look for employment in aschool-based child care service and others elect to become child care service providers (CCSPs).These choices need to be taken into account in statistical projections.

- Several colleges offer an Attestation of Collegial Studies (ACS) in child care services, but thisdiploma needs to be combined with three years of experience in a child care service or CPE for it tobe recognized.

- Several educators with no credited or recognized training based on MFE standards have beenworking in CPE’s for many years and appear to be doing satisfactory work. Completing furthertraining on their own accord and at their own expense does not provide them with enough benefits interms of wages or work conditions to motivate them to complete such training.

Faced with this situation, the MFE has taken action on two fronts. It has worked to implement a vastcampaign to promote and increase recognition of the profession , entitled “Besoin de toi” (“We need you”).This campaign was featured in media outlets, throughout the child care network in Quebec, and in highschools, through guidance counsellors (Spring of 2000). The campaign’s objectives included recruiting agreater number of young people interested in completing a college diploma in early childhood education.The MFE had to fight against prejudice in high school students regarding the educator’s profession. Thecampaign was effective in causing an increase in the number of candidates in colleges, and the candidates’school achievement levels were higher.

The MFE also examined the number of educators already working in the network with no recognizedtraining. It appeared to the MFE that it would be faster to target this clientele directly. These educatorsalready have the three years of experience required for qualification recognition and only need to be offeredan approach that enables them to complete an Attestation of Collegial Studies (ACS) program. This wasprecisely the clientele targeted by the MFE when it invited representatives from on-going education andregular programs in a dozen colleges from the greater Montreal area, as well as representatives from theConcertation interrégionale des centres à la petite enfance du Québec (CIRCPEQ), to a special meeting.The meeting was intended to review the contents of the ACS program offered in the network and tocompare it with the review of the working situation that had been completed earlier as part of the reform ofChild Care Education Techniques program (since then renamed Early Childhood Education Techniques, orECET). The meeting was also intended to check whether colleges would be able to provide a sufficientnumber of new graduates (ACS and college diplomas) to support CPE’s, so that they could comply with theregulations regarding staff qualifications.

Following data collection, the MFE soon realized that, without direct intervention in the sector, it would beimpossible for CPE’s to meet the new requirements regarding staff qualifications. The problem was then toidentify sources of funding and an appropriate procedure for such an intervention, so as to enableexperienced, but untrained, educators to obtain an ACS as quickly as possible.

During this consultation process, the MFE undertook the implementation of a Round Table on the issue,called “La table des partenaires”. The CSMO-ESAC (Comité sectoriel de la main-d’œuvre – Économiesociale et action communautaire) was put in charge of managing the Table and the project, in collaboration


with the CIRCPEQ.15 Several approaches taking into account the reality of these workers were suggested.A full-time training program with comprehensive compensation for the educator and her substitute wassuggested. The objection was that the shortage of educators would result in a shortage of substituteeducators as well, and the proposal was rejected. Other innovative training approaches within CPE’s weresuggested, but they were deemed to be too costly and unrealistic in the short-term. The issue of fundingsoon became the central question, and the Round Table had to fall back on a more traditional and lesscostly approach. Emploi-Québec normally funds training programs for unemployed people looking for work.In this situation, funds were needed for already employed people. Upon further review, however, it wasdetermined that, should these people not be trained quickly, the CPE’s would be unable to meet the newregulatory requirements and these workers might, in certain cases, find themselves without employment.(Certain CPE board of directors were already expressing such a possibility quite clearly.) Consequently, theTable proposed a training project entitled “Le projet majeur : Formation des éducateurs et des éducatricesen emploi” (“A Major Project: Training for Educators in Employment”). Funding for this project was theresponsibility of Emploi-Québec. The MFE and the Quebec Department of Education (Ministère del’Éducation du Québec, MEQ) provided funding to develop tools for prior learning assessment.

In the beginning, the response from child care workers was rather unimpressive. Classes were available inthe evenings and on week-ends only. The cost of classes and books were completely covered, buteducators had to complete prior learning assessment exams and attend classes, often times in locationsaway from where they lived, in addition to their regular workload. It should be remembered that this projectwas intended for adults who, for the most part, had their own parental responsibilities in addition to theirjob. Several communities were unresponsive and the project took off to a slow start. With time, and good“marketing” strategies from organizations and colleges in every region, the project increased in popularity.The increase was such that the project’s completion was jeopardized by a lack of funding. Followingpressure from organizations and colleges, more money was found to enable educators to complete theprogram in the allocated time. The project was completed at the end of the Winter 2002 session.The Round Table held regular meetings throughout the entire duration of the Projet majeur. At the end ofthe project, the Round Table was dissolved. Since the educator shortage issue had not been solved,however, a new table was formed with the same partners. This new table was called “La table deconcertation main-d’œuvre sur les CPE” (ECC Labour Round Table). A first meeting was held in May 2002to further define this Table’s plan of action:

15 The various partners sitting on this Table include:

CSMO-ESAC: Comité sectoriel de la main d’œuvre : économie sociale et action communautaireMEQ- DGFPT: Direction générale formation professionnelle et technique du Ministère de l’ÉducationAEETESG: Association des enseignantes et des enseignants en techniques d’éducation en service de garde

(aujourd'hui AEETEE)Fédération des cégepsMFE: Ministère de la Famille et de l’EnfanceEmploi-QuébecRegroupement des collèges de la MontérégieRegroupement des collèges du Montréal MétropolitainCIRCPEQ: Concertation interrégionale des Centres à la petite enfance du QuébecCCFD: Centre collégial de la formation à distanceFCPEQ: Fédération des centres à la petite enfance du QuébecCSN: Confédération des syndicats nationaux du QuébecCEQ: Centrale de l’enseignement du QuébecCES: Chantier de l’économie sociale


- Identification of numbers required per region, through a questionnaire administered to CPEmanagers in order to identify the demand in educators, while taking into account internal andexternal mobility, as well as specific issues relating to the inclusion of immigrant populations.

- Identification of numbers required per region for diploma programs in early childhood education(college diploma and ACS).

- Development of lists of training sessions and services offered in colleges.- Emphasis on items to be integrated into the development of strategies for awareness-raising and

publicity targeting high school and college students — which will complement the studyconducted by the MFE as well as the process initiated by the Fédération des cégeps to identifythe numbers of ACS graduates, with a focus on networking and information sharing. 16

In the spring of 2003, CPE’s will receive a questionnaire intended to assess the training needs ofeducators. The questionnaire is currently going through a validation process with the various partnersinvolved in the Table.

4. Sector-based initiatives

4.1 Role and initiatives of regional groupsThe regional groups of child care centres and agencies have had to adapt to the transformation of thenetwork and diversification of services and transform themselves into diversified groups of child careservices. Some have even merged, while others have dissolved. After a reaction of surprise at thegovernment’s announcement that it was creating CPE’s, the community responded positively.

The CIRCPEQ and the FCPEQ (Fédération des centres à la petite enfance du Québec) continue to play arecognized leadership role at the provincial level. Together or individually, they represent their members onround tables. These special interest and advocacy organizations have had a great impact on recent policydecisions.

Both these provincial organizations and regional groups of CPE’s receive government support. The fundingformula favoured by the government compels them to fulfil a social mandate of on-going training for theirmembers and to contribute to service development:

Social mandate of on-going training:In addition to the MFE’s funding program for groups and organizations, Bill 90 favours labour developmentand enables employers or associations of employers to obtain the status of training institutions and providetraining services of their members or employees while benefiting from tax breaks and funding programs.On-going training is an important aspect of member services that meets the needs of member CPE’s andchild care centres. In terms of economic survival, regional groups can exist in part thanks to the incomegenerated by healthy management of grants and selling on-going training programs.

Contribution to service development:Several departments and para-public agencies are expected to consult with regional groups on a one-off oron-going basis. They enter into protocol agreements with them and, throughout the province , functionalinvolvement evolves into networking that is expected to be effective.

16 Taken from Synthèse des activités de la table de concertation main-d’œuvre ECC, by Lynda Binhas, CSMO-ESAC.


The MFE, through Regional Development Councils (RDCs) in regional county municipalities, has delegatedthe assessment of needs in services to a Child Care Services Development Committee operated by two orthree permanent employees. Their recommendations are submitted to the Board of Trustees of the RDCs,who endorse them and forward them to the MFE. Other partners come from departments involved in labourdevelopment and regional development (Emploi-Québec, Ministère des Régions, and local developmentcentres), regular and on-going training (regional cégeps), and social development (local community servicecentres or LCSCs). Local agreements also mean that organizations such as unions, the Chantiers del’économie sociale et de l’action communautaire, associations representing women and families andorganizations promoting social inclusion of specific clienteles are involved as well. In addition todevelopment and diversification of services, the impact and implications of decisions made by the MFE arebeing analysed. The labour shortage and on-going training concerns are also on the agendas of thesecommittees. Information is being shared and the organizations involved in these networks work inconsultation to design projects intended to support development.

4.2 Role and initiatives of unionsStrategies and demandsTwo unions, the CSN and the CSQ, represent several categories of CPE and child care centre employeesin Quebec. These corporations represented unionized educators during the proceedings of the variousround tables and have been representing them since the beginning on the Comité d’orientation desservices de garde. The representatives have been advocating improvements in wages for child careworkers and have gone as far as organizing and holding provincial and regional strikes, as well as workingtogether with non-unionized employees in child care services. The unions claim that they are speaking notonly on behalf of their members, but also of all child care workers. These two corporations were able toobtain that the Government of Quebec become their interlocutor for the bargaining process regardingwages and related work conditions, for all categories of bargainable positions in child care services. Theirmain strategy was to treat the MFE (i.e. the government) as the primary employer, since it was contributingmore than 85 percent of the wage envelope of CPE’s through its grants. They have taken advantage of themomentum behind the transformation of child care centres into CPE’s and have been able to bargaindirectly with the government regarding wages, and not with each individual corporation of child care centresand ECC. The unions have greatly contributed to forcing the hand of the Quebec government and obtainingunprecedented wage increases starting in 1999.17

Pay equity and pension planThe issue of pay equity and the creation of a “pension plan” to benefit CPE and child care centreemployees is still being negotiated. The pension plan itself will require an investment of 55 to 78 milliondollars by the government, depending on who you ask. It will enable employees to benefit from guaranteedincome at the age of 55 with actuarial penalty and 60 with no penalty. The implementation of this programhas been announced for April 2003. The issue of pay equity is not exclusive to the child care service sectorand will be dealt with as part of the general timetable of the government, which has initiated a major catch-up program.

17 See: Règles administratives concernant la classification et la rémunération du personnel des centres de la petite enfance,

MFE, Government of Quebec, April 2000, 41 p.


4.3 Role and initiatives of training institutionsApproximately 25 Quebec colleges (cégeps) offer college diploma (DEC) and/or and ACS programs inEarly Childhood Education Techniques (ECET). Another 20 offer only ACS programs, without a regularfaculty providing expertise in the field.

Up until September 2001, the various colleges were offering a diploma in the previous program ( Child CareEducation Techniques, CCET). The last class of students in the previous program will graduate in May2003. The implementation of the new program (ECET) will thus be completed in September 2003. Thecollege diploma in ECET is based on the development of 22 skills.18 With the development of the networkand the shortage of trained staff, each college had to increase local contingents by at least one group.Regional colleges are not able to further increase their contingent due to lack of clientele. Colleges in bigcities, on the other hand, establish their contingent based on the number of students that they canaccommodate: availability of lab classes and internship environments. The college diploma is usuallyoffered to the regular day-time clientele, which is mostly comprised of students coming from high school.

Until recently, colleges would offer ACS programs of 765 hours, 1080 hours, 1830 hours, etc. with oneinternship, two internships, etc. — all of them recognized by the MFE. Each college could offer its own ACSprogram to a clientele of “adult” learners with funding from Emploi-Québec, since the legislation gives

18 Skills statements for college diploma:

Early Childhood Education Techniques (ECET):Specific Skills:- analysing work duties- observing a child’s behaviour- putting a child’s needs in the context of total child development- acting safely in the work place- establishing an emotionally valuable relationship with children- intervening with respect to a child’s health- communicating in the work place- providing help to a child- using one’s creativity in the context of professional intervention- designing total child development activities for children- organizing educational experiences- facilitating educational experiences- assessing a child’s specific needs- defining the learning approach to be used with a child- analysing the family and social context of a child’s life and determining its impact on behaviour- designing and reviewing the education program- establishing a partnership with parents and resource persons- working as a team- organizing a child care service- ensuring healthy nutrition for children- intervening with respect to the behaviour of a child or group of children- providing educational services to a group of childrenInterdisciplinary Skills:- oral and written communication in mother tongue- oral and written communication at an functional level in a second language- making critical judgements based on rational assessment of a situation- health and physical abilities required to work actively with childrenTOTAL: 22 specific skills and 4 interdisciplinary skills


colleges a great degree of independence and allows them to offer institutional ACS programs. It is not hardto understand that the longer the ACS program was, the more money would go into the college’s coffers.

The Fédération des cégeps was aware that ACS programs of varying duration and content were notequivalent to each other and that several of them could not meet the basic standards required by the MFE.Taking advantage of the fact that, during the same period, CCET departments (now ECET) were in theprocess of reforming their programming and implementing the skills-based approach, the Fédérationassumed a leadership role and implemented a committee whose mandate was to create a sharedprovincial ACS program.

This committee created the new ACS (called “AEC JEE-OK”), which is currently offered throughout theprovince. It was understood that each college would follow a list of 13 skills 19 targeted by the program butthat the content could be adapted in order to complement the programs developed in each department.This new ACS was a significant step towards better consultation at the provincial level. On the other hand,since the program is now available throughout the network, any college can request to become a providerof ACS, regardless of whether it has a regular teaching department in the field or not.

The college diploma in early childhood education or the ACS combined with three years of experience arethe basic training paths that enable early childhood educators to become classified and recognized astrained child care staff. The MFE, however, is currently working on a review of the training paths that aredeemed relevant and to the corresponding conditions. It is consulting with the various partners involved inthe Comité d’orientation on CPE’s.20

Prior learning assessment (MEQ funding, Projet majeur)Child care training programs have been using prior learning assessment tools for many years. These toolswere reviewed in the mid-nineties. With the introduction of a new skills-based program, however, such toolswere no longer appropriate. Due to the great opportunities for obtaining a diploma provided by the prior

19 Skills statements for ACS:

Specific Skills:- analysing work duties- observing a child’s behaviour- putting a child’s needs in the context of total child development- acting safely in the work place- establishing an emotionally valuable relationship with children- intervening with respect to a child’s health- communicating in the work place- providing help to a child- using one’s creativity in the context of professional intervention- designing total child development activities for children- organizing educational experiences- facilitating educational experiences- intervening with respect to the behaviour of a child or group of childrenInterdisciplinary Skill:- writing and summarizing occupation-specific textsTOTAL: 13 specific skills and 1 interdisciplinary skill

20 See the layman’s guide Les exigences de formation des éducatrices et des éducateurs à l'enfance, selon les règlements surles centres de la petite enfance et sur les garderies, MFE, Quebec, 44 p.


learning assessment process, the MEQ, in collaboration with ECET instructors, has developed a priorlearning assessment process that covers all the skills required in ECET training.21

Distance training coursesAt this time, the Centre collégial de formation à distance (Distance Training College Centre, or CCFD) is inthe process of developing distance training tools for the skills required by ACS programming. The medium-term goal is to provide distance training for all 13 skills. Several instructors in ECET departments arecollaborating with the program developers. The CCFD also intends to work on a project for a distancetraining course offered through the Internet for the “creativity and professional intervention” skill. 22

5. Approaches and strategies for recruiting and retaining child carestaff

5.1 Conditions for retentionIn Section 2, when discussing the difficulties experienced in recruiting and retaining staff, we mentioned thenumber of spaces created since 1997, i.e. 67,736 spaces, for a current total of 146,600 spaces. Therecruiting difficulties caused by this sharp increase are obvious, but what about staff retention?

21 Prior learning assessment (funded by Quebec Department of Education, major project)

Even though the JEE0C is an objective-based program, the QDE has taken the opportunity of this major project forcurrently employed educators to provide funding for the creation of prior learning assessment tools for the following threecourses:• Children and Health• Expression of Creativity• Child Care SystemConsequently, these three courses were not funded by the major project, since it was determined that experiencedworkers targeted by the project had the experience corresponding to the courses’ objectives. In other words, thesecourses were compulsory, but the educators could complete them in the form of prior learning assessment. If aneducator failed the prior learning assessment process, then she had to take the corresponding course at her ownexpense.Due to the great opportunities for certification provided by the prior learning assessment process, the QDE, incollaboration with ECET teachers, have developed a prior learning assessment process which covered all the skillsrequired in this particular training program.Students who consider that they have the relevant experience for a skill can apply through the prior learning assessmentprocess. They need to be fully enrolled in a college before the process can be initiated. The same tools are used by themajority of colleges throughout the province. One objective of the training process is to cover the clientele for childrenaged 0 to 12, and the PLA tools have been designed with this objective in mind. The student must demonstrate that shehas developed the skill for all age groups. She may demonstrate that she has developed the skill in school or throughextra-curricular activities. Following an assessment process that may include one or more items, such as an interview, anexam, a demonstration, a task, on-the-job observation, etc., the assessor determines whether the student hasdemonstrated that she has developed the skill and, if necessary, may direct her to ways in which she can develop thoseaspects of the training that are still needed.A number of colleges have been targeted and funded to participate in pilot testing for these tools. Meetings were held atregular intervals for participating colleges in order to ensure consistency within the project.

22 Distance training course:At the same time (during the creation of the major project), Emploi-Québec provided funding for the creation of the samethree courses (Children and Health, Expression of Creativity, and Child Care System) in distance training (a project designedby the CCFD, Centre collégial de formation à distance). These courses were not launched during the major project, however,but only in the fall of 2002.


Since the first child care services appeared in the seventies, it is obvious that a significant number ofeducators are planning on retiring because of their age and the physical fitness levels required to do andenjoy doing early childhood work. Younger and less experienced educators will be expected to fill thepositions made available elsewhere in the network. They are accumulating seniority and can transfer it fromone ECC to the next. As well, child care service providers (CCSPs) are often young mothers who havechosen to stay at home with their children. In order to increase their family income, they seek recognition toopen their own family-based child care service. Several of them, once their children start attending school,will elect to change careers.23 What will influence their decision to continue their employment with the samechild care service, to change employers, or to leave the network?

The implementation of favourable conditions for staff retention is beginning to be a source of concern forchild care service employers. The existing conditions in the organizational and social environment — roleexpectations, hiring criteria, duties, available resources for the expected role, managerial style ofadministrators and managers, supervision and evaluation, recognition of work achievements, culture andatmosphere of child care service, standardized rules and union regulations, situation of child care service,development stage, managerial skills, level and quality of organization, quality of physical environment, etc.— will need to provide guaranteed attractions if they are to promote staff retention. Work-based well-beingwill become a priority issue for staff members if they can choose their working environment.

5.2 Significance of managerial skills24

The level of competence of managers is demonstrated by their knowledge of the educators’ needs andconcerns. Ideally, they would adopt a model that supports professional development and communicates aglobal vision of quality child care services. They would demonstrate their understanding of the role andduties of educators. They would develop structures that foster professional development in-house andassume a leadership role in support and training. But what about the actual level of competence ofmanagers? Sections 13 and 14 of the regulations regarding CPE’s and other child care services onlyspecify the duties of the ECC manager. No qualification is specified in the regulations (even thoughrelevant training paths are described in order to determine the classification level when entering theprofession).25

The following section provides an overview of a managerial model that is adapted to the reality of child careservices. It is a promising model intended to deal with the issue of recruiting and — most of all — retainingtrained staff. It proposes staff support as an intervention strategy whose ultimate goal is to improve theorganizational and social environment in the work place.

23 These comments are based on my own personal experiential knowledge of the system, rather than statistical data, which will

soon be made available, however.24 See: Développement professionnel et gestion éducative, Programme d'autoformation pour le personnel gestionnaire des

services de garde, Camille Gariépy, Natalie Lamarche, Cégep de St-Jérôme, St-Jérôme, 1996, 478 p.161, 231–233, 287–294.

25 See: Règles administratives concernant la classification et la rémunération du personnel des centres de la petite enfance,MFE, Government of Quebec, April 2000, 41 p.


6. A model to promote staff retention: Educational management andin-service professional development

6.1 Characteristics of an educational child care serviceIn educational management, a quality child care service corresponds to the definition of an “educationalenvironment“ proposed by Legendre (1983) and adapted to child care by Gariépy (1990) and Gariépy &Lamarche (1994).

DefinitionAn educational child care service is characterized by its focus on actual responses to the children’s needs.Its educational environment is created and improved by developing an educational infrastructure consistingof a teaching dimension (educational relationship with the child learner) and an adult-training dimension(training relationship with the adult learner). An administrative infrastructure is also created to support andensure that educational services are maintained.

Educational infrastructureThe educational infrastructure includes components associated with two sets of educational contexts: theteaching contexts, in which the child learns and develops, and the adult-training contexts, in which adultsfocused on children are learning through a training relationship. A primary educational project reflects thetargeted reference values and outcomes. The various elements of the teaching dimension are identified ina secondary teaching project, which includes objectives that relate to the children’s needs and theeducational experiences that are being considered (policies, programs, intervention approaches, context),as well as procedures for assessing and managing the learning process. The various elements of the adult-training dimension are identified in a secondary training project, which includes objectives that relate to theneeds of adult learners focused on children, the educational experiences that are being considered(policies, programs, intervention approaches, context), as well as procedures for assessing and managingthe learning process.

Administrative infrastructureThe administrative infrastructure includes various elements connected through policies and programs,which are designed to serve and support the development of the educational infrastructure. Thesemanagement programs generate activities that foster the realization of the mission, the raison d’être of thechild care service. They ensure that the educational system is maintained and developed. The variouselements of the administrative structure are identified in an administrative project, which includesmanagement policies and programs regarding human resources, material resources, funding,communication, and marketing.

6.2 Professional development and educational managementProfessional development is an integral part of educational management practices. It provides interventionsdesigned to better deal with:

- the lack of social recognition and understanding of the professional dimension of child careintervention;

- the ever-changing social realities (issues related to children, violence, poverty, etc.), whichrequire that we constantly upgrade our knowledge in order to provide better interventions;

- the various degrees of training and experience of the educators and the manager;


- the diversity of child care services (clientele, socio-economic background, type, status and sizeof child care service, nature of educational programs, business culture, characteristics of staffmembers, financial resources and available materials, etc.);

- the development of child care service skills.

It is not true that, once an educator has completed her training, she has the required skills. Trainingactivities may trigger the skill development process in the individual, but the actual skill developmentprocess is supported by experience, by the experience of real-world work situations. It would be unrealisticto expect that a graduate with no experience working in education demonstrates the technical andpsychological maturity and the level of competence required to deal with all the dimensions of her role,responsibilities, and duties. It is through day-to-day experience with real work that the skills develop.

It is understood that skills are built and developed in the work environment. An interest in professionaldevelopment requires questioning about on-going learning in the work environment and about preferredforms of upgrading. The goal is to build a high level of motivation in the individual’s quest for professionalfulfilment. That is why the members of the management team, the staff, and the manager are themselvesperceived as adults who are in the process of developing their skills, but also — and above all — as agentsof staff development. Educators might encounter problems or deficiencies, but above all they possess anddemonstrate abilities and skills that are worthy of recognition, support, and development. For all thesereasons, professional development is, to the various partners in the child care service, an issue whose goalis to promote growth, skill development, and knowledge improvement in individuals involved in a child careservice.26

In educational management, managers demonstrate a managerial style that is characterized by opendecision-making. This is intended to promote a working context in which the various stakeholders developtheir focus on the children and their quest for professional development and quality services. Applying theprinciples of participatory management becomes a priority for them. The goal here is to stimulateinvolvement in order to develop quality.

The relevant foundations of participatory management are the following:• Management is based on true collaboration between partners: director, manager, staff members,

and other stakeholders.• Relations between the director and the staff are based on trust and not essentially on authority.• The director promotes a free flow of information and expects other stakeholders to do the same.• Team work is considered indispensable to educational management. Groups are advisory or

decision-making units in their respective fields and areas of responsibility.• The work of the various teams requires efficient coordination by the manager.• The various partners deal with conflicts as normal problems that need to be solved.

Managers involved in educational management also believe in the following principles of individualaccountability:

• Self-control should replace authority-based direction.• Participation generates motivation.

26 Adapted from Natalie Lamarche, unpublished master’s degree thesis, in Programme DPGE : Camille Gariépy, Natalie

Lamarche (1996)


• The individual should be responsible for specific objectives that reflect the goals of the business.

In such a context, the managers and staff establish their objectives and evaluate the outcomes based ontheir shared projections. Managers themselves are still responsible for achieving and implementing thestrategic goals. Each staff member is trained to become accountable in her area of responsibility and herown professional development. While applying their power to direct people, managers elect to providesupport and guidance to those staff members who demonstrate a behaviour that is adapted to thismanagerial style; otherwise, they direct and monitor their staff. In a support-based approach, eachindividual learns how to become accountable for her established objectives. Each individual tries to assumeher responsibilities and to play her role. With this approach, participation becomes a way to develop quality.Consequently, educational management becomes a strategic tool used to make the work environmentmore attractive and thus promote staff retention.

6.3 The necessity of situational diagnosisPeople who wish to become educational managers acknowledge that this type of management is based,among other things, on an understanding of the conditions in which they can provide a kind of leadershipthat promotes training.27 Knowing such a model can help identify the necessity of situational analysis whensystemic intervention is required to foster and support professional development. An effective leader needsto consider her analysis of the situations she has to manage — i.e. to conduct what is called situationalanalysis or diagnosis. Four types of basic intervention can be identified and practiced:

1. guiding (directing)2. explaining3. involving4. delegating and entrusting with a decision-making role

The implementation of such interventions and efforts to promote professional development is a way ofagreeing to be a leader who promotes training and adapts to her evaluation of work situations. As well, theimplementation of educational management is associated with the implementation of democratic andentrepreneur-like leadership.

Those who wish to demonstrate a kind of leadership that promotes training on the field are able to adapttheir interventions to the levels of technical and psychological maturity and the progress in professionaldevelopment of their staff. Such managers should however consider one major variable: the degree ofmaturity of those individuals that they wish to influence, and their own ability to assess this degree ofmaturity.

Situational diagnosis is only an example of the set of managerial skills that need to be promoted. The styleand quality of managerial leadership was shown long ago to have a profound influence on theorganizational and social environment in the work place. Like all other work environments, child careservices would benefit from greater emphasis on such skills. It has taken too long for the training and skillsof executives to be taken seriously. Wage inequalities and the lack of recognition of their field ofmanagement are also part of the problem.

27 Programme DPGE : Camille Gariépy, Natalie Lamarche (1996)


ConclusionThe expansion of the CPE network will be completed when 174,000 spaces with reduced enrolment feesare implemented and maintained. This in itself is enough to indicate that recruiting trained staff will remaindifficult in the next few years.

The pool of currently employed individuals who might wish or be able to be trained is almost exhausted. Inaddition, inter-service mobility is becoming a reality for child care workers. We anticipate that recruiting andretaining trained staff will become a daily challenge for managers, much in the same way that recruiting andretaining nurses has recently become an issue in Quebec’s hospitals. Social benefits and other non-wage-related conditions, such as a stimulating organizational and social environment, might encourage people toretain their position or choose a particular work place. Demonstrating managerial skills is precisely a way tofacilitate the implementation of favourable organizational conditions, which is why the system’sstakeholders should require managers who are trained and have specialized in educational management.

A healthy vision of quality child care services is based on a variety of characteristics that are intended,among other things, to acknowledge that child care services are educational environments that strive tomeet the needs of children, all the while promoting professional development for their staff. This visionshould be promoted when dealing with the decision-makers who recruit and evaluate managers. Themanagers themselves will carry out and implement the vision. Could professional development forexecutives be essential to staff retention (in all positions)?

If we want young people to embrace this profession in massive numbers, we need to fight againstpersistent prejudice. Professional recognition requires wage equity with similar professions, but alsorecognition of the value of the individuals who choose to work with small children. Providing care to childrenand playing an educational and social role are definitely much more than just “care-giving”.

review of the issue of recruiting and retaining qualified ... · review of the issue of recruiting...

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