Cuts to provincial training program left thousands without affordable access to continuing education

More than 2,300 low-income students across Alberta lost access this school year to financial help for courses preparing them for work or post-secondary education after cuts to an aid program.

A change to a federal program that funds work readiness initiatives across Canada left Alberta's Foundational Learning Assistance program (FLA) short $34.7 million, the province says.

It prompted a hasty funding reduction to continuing education programs across Alberta, which was a particular blow to marginalized groups, according to some of the post-secondary institutions running programs.

"It is a population that we're looking to provide opportunities for, and so, that's a little bit on the challenging side to see," said Peter Leclaire, vice-president academic of the Northern Alberta Institute of Technology (NAIT), in a late-November interview.

More than 40 organizations, including 14 post-secondary institutions, believed there would be nearly $117 million available this school year for low-income students taking academic upgrading courses, English as an additional language, Indigenous post-secondary preparation courses and other training.

For students who qualify, FLA funding can cover the cost of tuition, books, fees and supplies, computer hardware and software, health and transportation costs, living expenses or child care while they're enrolled in courses.

But last summer, the federal government ended a top-up to the Labour Market Transfer Agreement (LMTA) to provinces and territories, resulting in a $70-million funding reduction to Alberta programs. About half of that affected the advanced education budget.

Last fall, the province said it needed time to assess how the funding loss would affect career and post-secondary preparation programs. It now says it has cut the FLA program by nearly 30 per cent.

That funding shortfall prompted colleges, universities and polytechnics to halt or drastically limit taking FLA applications.

Alberta's Advanced Education Minister Rajan Sawhney said in December she was "blindsided" by the federal government's funding reduction.

Although the federal government has said provinces have known since 2017 that top-up funding would end in 2024, Sawhney said the provinces were negotiating to try and convince them to keep it flowing.

The advanced education department is now reviewing FLA, along with other adult education programs, Sawhney said.

"My role is to make sure that we have enough spaces, enough seats and enough supports," Sawhney said. "And even though this program has been impacted, there might be other programs that are expanded upon." 

Students across the province feel effects

Each post-secondary was hit differently, depending on which programs they offered, and how many.

Many schools have posted notices on their website saying FLA aid is limited or unavailable until further notice.

Some institutions were reluctant to explain the implications. Many prioritized keeping existing students enrolled and turned away new applicants.

Bow Valley College says it lost about $2.1 million in funding, which prevented about 700 students from enrolling in academic upgrading and English language learning courses.

It was a 43 per cent reduction from the previous year, and prompted the college to lay off 19 staff, a college spokesperson said. The union representing some affected post-secondary workers declined to comment.

"This is a difficult time for our Foundational Learning and Global Access students, many of whom are acquiring literacy skills or upgrading to enter a college program and go on to a career," said an emailed statement from Michael Crowe, Bow Valley College's vice president, academic.

"Our employees supporting these students forge unique connections and are known for their warmth and compassion."

Calgary's Mount Royal University saw FLA funding cut by nearly 38 per cent this year, and FLA cash to Red Deer Polytechnic fell by 35 per cent.

SAIT turned to donors to offer short-term bursaries so affected students could continue their programs.

Last year, students enrolled in upgrading, English language education and day home provider training courses at NorQuest College in Edmonton received $3.85 million, a spokesperson said. The college has received 24 per cent less funding this year, and is still calculating how many FLA-funded students will enrol this winter.

NorQuest is advocating for the federal government to restore LMTA funding. It has also asked the Alberta government to pay for a new three-year pilot program that offers academic upgrading to Indigenous students, the spokesperson said.

NAIT vice-president Leclaire said so far this school year, the institution's FLA funding is 31 per cent lower than last year, and the number of students enrolled in English language learning and academic upgrading has halved.

The programs fill critical gaps in education and training for adults, Leclaire said. Students enrolled in the programs don't qualify for student loans because they're not earning post-secondary credits. The school says the majority of students in affected programs are women.

"Not every individual comes out of high school knowing what they're doing and making sure that they have all the necessary requirements to come into programs," Leclaire said. "And in some cases individuals are looking for an opportunity just to get the basic skills to get them better employment."

Many of those students stay at NAIT, he said, enrolling in health and life sciences, trades, or engineering and chemical engineering technologist training.

"These programs have proven to be successful and get people into more meaningful jobs, and you'd like to see them there," Leclaire said.

Charity feels the spillover

Edmonton's Project Adult Literacy Society (PALS) can't keep pace with the booming demand for adult education.

The charitable organization — which does not receive FLA funding — connects volunteers with adults who need help with English reading, writing and comprehension, numeracy, digital literacy skills, and immigrants who need English help.

People who dropped out of school during the COVID-19 pandemic are looking for help and having trouble finding it in a timely fashion, said Monica Das, PALS's executive director.

FLA funding cuts have added to the demand for PALS' help, she said, and there are now more than 100 people on a waiting list.

Das said it baffles her how difficult it is to find secure funding for adult literacy programs, when the return on investment is so great.

"You can see the results so instantly," she said. "It's going to the root cause of food insecurity, unemployment, and also breaking the cycle of low literacy within the family."

Das said the government should invest more in non-profit organizations like PALS, which rely on volunteers and can deliver help more economically.

The government's refusal to fund FLA as budgeted is "deeply irresponsible," says David Eggen, the Alberta NDP's advanced education critic.

The provincial government recruited newcomers, and is now failing to provide the social security net immigrants need to learn English and adapt to Canadian culture, he said.

"You're literally leaving people in a cycle of low-paying jobs and poverty working in the service industry," he said.

Sawhney wouldn't say what foundational learning funding will look like in February's provincial budget — those deliberations are confidential, she said.

The province had also boosted the budget for the program in 2023-24 when rising living costs chewed through the money faster, prompting officials to cut off applications early.

Although Sawhney said FLA is an important program, she tells post-secondary institutions to expect change.

"We're going to have to deliver it differently."