Very briefly, it comes down to the wording in the agreements. Some agreements specified that the space creation targets were net new and some did not specify that.
The measurement of what was reported against those objectives can be a mixed bag of things. For the Saskatchewan example, it is an estimated number of spaces, because about a quarter of the family home spaces in Saskatchewan are for school-aged children. That shouldn't have been counted depending on how you define the parameters of new space creation.