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Alberta's Day Care Controversy: from 1908 to 2009—And Beyond

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Alberta’s Day Care Controversy Alberta’s Day Care Controversy From 1908 to 2009—and Beyond Tom Langford © 2011 Tom Langford Published by AU Press, Athabasca University 1200, 10011 – 109 Street Edmonton, AB T5J 3S8 Library and Archives Canada Cataloguing in Publication Langford, Tom Alberta’s day care controversy : from 1908 to 2009—and beyond / Tom Langford. Includes bibliographical references and index. Issued also in electronic format (978-1-926836-03-4). ISBN 978-1-926836-02-7 1. Day care centers—Alberta—History. 2. Day care centers—Government policy—Alberta. 3. Child care services—Alberta—History. 4. Child care services—Government policy—Alberta. I. Title. HQ778.7.C32A4 2011 362.71’2097123 C2010-905425-3 Cover design by Natalie Olsen, kisscutdesign.com. Book design by Marvin Harder, marvinharder.com. Printed and bound in Canada by Marquis Book Printing. This project was funded in part by the Alberta Foundation for the Arts. This publication is licensed under a Creative Commons License, Attribution-Noncommercial-No Derivative Works 2.5 Canada, see www.creativecommons.org. The text may be reproduced for non- commercial purposes, provided that credit is given to the original author. Please contact AU Press, Athabasca University, at [email protected] for permission beyond the usage outlined in the Creative Commons license. Contents Tables | vii Abbreviations | ix Timeline | xiii Acknowledgements | xvii 1 Introduction Research Strategy, Themes, and Scope | 1 2 Early Efforts to Organize Day Nurseries, 1908–45 | 15 3 The 1960s Citizen Action, Civil Servants, and Municipal Initiatives Lead the Way | 39 4 The 1970s Governments Fund High-Quality Day Cares as Preventive Social Services | 75 5 Years of Turmoil, 1979–82 A New System for Day Care Is Born | 123 6 From Corporatized Chains to “Mom and Pop” Centres Diversity in Commercial Day Care | 159 7 Day Care in Question, 1984–99 | 191 8 Municipalities and Lighthouse Child Care, 1980–99 | 237 9 Day Care into the Future Trends, Patterns, Recent Developments, and Unresolved Issues | 287 Appendix A Supplementary Tables | 329 Appendix B List of Taped Interviews | 339 Notes | 341 References | 389 Index | 397 v Tables 3.1 Demographic and Labour Force Changes in Alberta, 1946 to 1971 | 40 4.1 Involvement of Six Alberta Municipalities in Day Care, 1966 to 1980s | 76 4.2 Licensed Day Care in Alberta, 1975, by Region and Auspice | 91 6.1 Licensed Day Care in Alberta, 1982, by Region and Auspice | 161 6.2 Licensed Day Care in Alberta, 1995, by Region and Auspice | 164 6.3 Ownership Status of Day Care Centres in Calgary, 1975, 1982, 1995, and 2002 | 169 6.4 Asian-Canadian-owned Commercial Day Cares in Calgary and Edmonton, 1975, 1982, and 1995 | 181 7.1 Monthly Operating Allowances for Alberta Day Cares (Actual Versus 1990 Projections) | 214 8.1 Out-of-School Care in Edmonton, 1981 to 1991 | 242 8.2 Support for Lighthouse Child Care, 1980 to 1992 | 251 8.3 Supplemental Funding for Edmonton Day Cares, 1995 and 2005 | 281 9.1 Demographic and Labour Force Changes in Alberta, 1976 to 2008 | 290 9.2 Children in Non-parental Child Care, 1994–95 and 2002–3 | 293 9.3 Licensed Day Care in Alberta, 2002, by Region and Auspice | 296 9.4 Changes in Day Cares, 1995 to 2002, by Auspice and Region | 297 A.1 Licensed Day Nurseries and Day Care Centres in Alberta, 1959 to 1977 | 329 A.2 Licensed Day Care Centres and Family Day Homes in Alberta, 1978 to 1981 | 330 A.3 Licensed Day Care Centres in Alberta and Their Capacity, 1981 to 2009 | 331 A.4 Provincial Spending on Preschool Child Care (in Actual Dollars, Thousands) | 333 A.5 Provincial Spending on Preschool Child Care (in 2006 Dollars, Thousands) | 335 A.6 Selected Statistics on Child Care Programs in Alberta, 1979 to 2009 | 336 vii Abbreviations AAYC Alberta Association for Young Children (1971–99) ACCAP Alberta Child Care Accreditation Program (2005– ) ACCN Alberta Child Care Network (1987–2009; succeeded by Alberta Child Care Association) ADCAC Alberta Day Care Advisory Committee (1980–86) ADCTF Alberta Day Care Task Force (1977) AFWUF Alberta Federation of Women United for Families (1981– ) AHS Aboriginal Head Start AHSTF Alberta Heritage Savings Trust Fund (1976– ) ATRC Alberta Tax Review Committee (1998) B-MDCA Bowness-Montgomery Day Care Association (Calgary, 1968– ) CA Calgary Archives, City of CAFRA Child and Family Resource Association (Greater Edmonton Area) CAFSAC Community and Family Services Advisory Committee (Edmonton) CAP Canada Assistance Plan (1966–96) CAPC Community Action Program for Children (1992– ) CCFRC Child Care Family Resource Centre (Edmonton) CDN Community Day Nursery (Edmonton, 1964–2001) CDNC Calgary Day Nursery Committee (1943–44) CFSA Child and Family Services Authority (regional authorities, from 1998) CSA Council of Social Agencies (Edmonton and Calgary, 1940s) CSS Calgary Social Services CSSC Children’s Services Sub-Committee (Edmonton, 1986–92) CUPE Canadian Union of Public Employees CWL Catholic Women’s League ix DCAC Day Care Association of Calgary (1967 to early 1980s) DCSA Day Care Society of Alberta (1982– ; preceded by PDCS) EA Edmonton Archives, City of ECA Early Childhood Academy (of Calgary) (1983–late 1990s) ECD Early Childhood Development ECE Early Childhood Education ECFS Edmonton Community and Family Services (municipal department from 1989; succeeded by Edmonton Community Services) ECS Early Childhood Services EDCC Edmonton Day Care Committee (1943–44) EDCC Edmonton Day Care Council ELCC Early Learning and Child Care (federal program, 2004–7) ESS Edmonton Social Services (municipal department; renamed ECFS in 1989) EWC Edmonton Welfare Council FCSS Family and Community Support Services (1981– ) FDH Family Day Home FSA Family Service Association (of Edmonton) FSS Family and Social Services (provincial department, 1989–99) HSD Health and Social Development (provincial department, 1971–74) IOA Independent [Day Care] Operators’ Association (of Medicine Hat and District) Kids First Kids First Parents Association (1987– ) KPMG Accounting, audit, and consulting firm. A limited liability partnership. Initials come from principal founders: Klynveld, Peat, Marwick, and Goerdeler. MADC Municipally Approved Day Care (Edmonton) MHDC Medicine Hat Day Care (1969–81) NAC National Archives of Canada NCB National Child Benefit (1998– ) NDP New Democratic Party NFFRE National Foundation for Family Research and Education NSS National Selective Service OOSC Out-of-School Care PAA Provincial Archives of Alberta PC Progressive Conservative (the political party in Alberta officially known as the Progressive Conservative Political Association of Alberta) PDCS Private Day Care Society (of Alberta) (1977–82; succeeded by DCSA) PLAY People Looking After Youth (a day care in Calgary, 1974– ) PQCC Parents for Quality Child Care (Edmonton) x Abbreviations PSS Preventive Social Service (1966–81) PTF Preschool Task Force (Edmonton, 1995) REAL Realistic, Equal and Active for Life (Women) (1983– ) RFD Request for Decision (prepared by minister for provincial cabinet) SPC Social Planning Council (of Edmonton or Calgary) SPC Social Planning Committee (of the Alberta cabinet) SSCH Social Services and Community Health (provincial department, 1974–86) UCCA United Child Care Association (of Alberta) (1987) UCCB Universal Child Care Benefit (2006– ) UCF United Community Fund VFM Value for Money (Audit) Abbreviations xi Timeline 1908 First charitable day nursery is established in Edmonton. 1912 Children’s Aid Society of Edmonton runs a day care, 1912–17 (approx.). 1930 Edmonton Creche is established on a charitable basis. 1935 Edmonton College, Inc. is established, with kindergarten and day nursery divisions. 1943 Wartime day nurseries cost-sharing agreement is signed by Alberta and Ottawa. 1944 Advisory committee votes four to three against establishing wartime day nurseries. Demonstration day nursery in Calgary opens and then closes. 1941–60s Strong kindergarten programs are run in Calgary as part of school system until 1954 and later by community groups or commercial operators. 1959 Province agrees to enforce its licensing regulation for day cares. 1960 First provincial civil servant is hired to be responsible for day care. 1961 First provincial standards for day care are put in place. 1964 Edmonton Creche Society decides to close the Edmonton Creche. Community Day Nursery (CDN) succeeds the Edmonton Creche. 1965 For the first time, the province agrees to finance a day care (CDN). 1966 Preventive Social Service (PSS) program begins. Canada Assistance Plan (CAP) begins. Mary Hull introduces a play-oriented program at CDN. 1967 Howard Clifford is hired as Edmonton’s first day care director. Edmonton adopts the Child Welfare League of America’s day care standards. Alf Hooke rejects use of PSS funds for Edmonton’s Glengarry Day Care. Day Care Association of Calgary is formed by commercial operators. A parallel group in Edmonton is headed by Hilde Bloedow. 1968 Province reverses Hooke’s decision on PSS funding for Glengarry Day Care. xiii 1969 Al Hagan is appointed Calgary’s first day care counsellor. Calgary adopts high day care standards much like Edmonton’s. First PSS day care opens in Medicine Hat. Ray Speaker rejects Lethbridge’s request for PSS funds for a day care after commercial operators protest. 1970 Day care opens at Mount Royal College, the first at a college in Canada. Bowness-Montgomery Day Care opens in Calgary. First cohort of early childhood education (ECE) students enters Mount Royal College in Calgary. 1971 Calgary’s first municipal day care (Shaganappi) opens. First cohort of ECE students enters Grant MacEwan College in Edmonton. Red Deer City Council votes against supporting a PSS day care. First change in provincial government in thirty-six years occurs. Peter Lougheed becomes premier. Alberta Association for Young Children has founding conference. 1972 Red Deer reverses 1971 rejection decision: firstPSS day care opens. First PSS day care opens in Grande Prairie. 1974 First PSS day care opens without publicity in Lethbridge. First cohort of ECE students enters Grande Prairie Regional College.
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