A Municipal Survey of Child Care Spaces and Policies In Metro Vancouver October 2011

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1 A Municipal Survey of Child Care Spaces and Policies In Metro Vancouver October 2011 Prepared By: Neil Spicer, Planning Analyst Janet Kreda, Senior Housing Planner Prepared for: Technical Advisory Committee Social Issues Subcommittee

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3 Table of Contents 1. Introduction and Key Findings Current Child Care Spaces in Metro Vancouver Municipal Child Care Policies (OCPs, Community Plans and Social Plans) Zoning and Business License Bylaws that Affect Child Care Provision Municipal Resources for Child Care Providers Municipality Identified Barriers to Child Care Opportunities and Next Steps...6 Appendix A - Child Care Inventory and Policy Initiatives by Municipality Appendix B - Regulated Child Care Spaces by province territory and percentage of children (0-12 and 0-5) for whom there is a regulated child care space List of Tables Table 1 Estimated Numbers of Children (0-12) and Child Care Spaces in Metro Vancouver by Municipality... 2 Table 2 Municipal Child Care Strategies, Plans and Policies in Metro Vancouver... 3 Table 3 Zoning and Business License Requirements for Child Care Facilities in Metro Vancouver... 5 Table 4 Municipal Resources for Child Care... 6

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5 1. Introduction and Key Findings Access to quality child care is vital to the well being of families and children and is a fundamental ingredient to economic growth and prosperity in the region. Child care is a key support for working parents or parents who are looking to return to the work force. Quality care in early childhood supports school readiness and health child development, and access to quality child care is particularly among vulnerable populations. For these reasons, child care has been identified as a priority issue by the Metro Vancouver Technical Advisory Committee Social Issues Subcommittee (TAC SIS). The purpose of this report is to present the findings of a region-wide municipal survey of policies and regulations relating to the provision of child care spaces. Municipalities regulate land use which affects the size and location of child care facilities and other aspects of opening and operating a child care facility that are not regulated by the province either through health and safety regulations or building code requirements. Municipalities are only one of several players in the development of child care spaces. The Province funds, licenses and regulates child care facilities through the Health Authorities, as well as provides guidance to municipalities and child care providers. There is a variety of community stakeholders as well, who play an important role in the development of child care facilities. This report is concerned primarily with the municipal role in child care. The survey was completed in cooperation with the TAC SIS members and highlights the number of child care spaces in the region, planning and zoning policies, business license requirements and barriers identified by municipalities in trying to meet local child care needs. The TAC SIS has identified opportunities for further work based on the results of the survey. Appendix A provides a detailed inventory by municipality of child care spaces as well as zoning, planning and regulatory policies. Key Findings: Metro Vancouver has on average 16 childcare spaces/100 Children age 12 and under, which is below the national average of municipalities have a child care strategy. 7 municipalities identify child care facilities as a community amenity in the development approvals process. Most municipalities permit child care facilities in a variety of residential and nonresidential zones. Several municipalities have guidelines and other documents to assist residents and/or child care providers in finding and establishing child care facilities. 2 municipalities have municipal child care programs 3 municipalities provide space for child care in municipal facilities. Municipalities most frequently identified inadequate capital funding from federal and provincial governments as a barrier to increasing child care spaces 1

6 2. Current Child Care Spaces in Metro Vancouver On average there are 16 child care spaces per 100 children age 12 and under in Metro Vancouver (Table 1). The number of spaces varies across the region, with the highest ratios (22-23 spaces) on the North Shore, and the lowest (6 9 spaces per 100 children age 12 and under) in Delta and Surrey respectively. Table 1 Estimated Number of Children (0-12) and Child Care Spaces in Metro Vancouver by Municipality (2011) Estimated No. of Children Age 12 and Under ** Estimated No. of Child Care Spaces *** Child Care Spaces per 100 Children Municipality * No. % No. % 12 and under Burnaby 25,385 9% 4,456 9% 18 Coquitlam 16,590 6% 3,369 7% 20 Delta 15,205 5% 2,097 4% 14 Langley City 3,335 1% 197 0% 6 Langley Township 15,170 5% 2,494 5% 16 Maple Ridge 11,725 4% 2,205 5% 19 New Westminster 7,305 2% 1,337 3% 18 North Vancouver City 5,415 2% 1,239 3% 23 North Vancouver District 12,740 4% % 22 Pitt Meadows 2,535 1% 500 1% 20 Port Coquitlam 8,675 3% 1,714 4% 20 Port Moody 4,715 2% 668 1% 14 Richmond 22,750 8% % 20 Surrey 68,185 23% % 9 Vancouver 63,730 22% 11,504 24% 18 West Vancouver 4,890 2% 1,098 2% 22 White Rock 1,615 1% 286 1% 18 Metro Vancouver 293, % 47, % 16 * excludes data for Anmore, Belcarra, Bowen Island, UBC/UEL and Lions Bay ** 2006 population data *** Source: Licensed spaces by Fraser Health January 2011 and Vancouver Coastal Health July 2011(Provincial Child Care Regulations) Metro Vancouver is below the national average of 18.6 spaces per 100 children and is on par with the rate for British Columbia which is 15.4 spaces per 100 children. The ratio of child care spaces to 100 children age 12 and under vary significantly by province, with the highest rate found in Quebec (36.1 spaces per 100 children) and the lowest rate found in Saskatchewan (6.3 spaces per 100 children). 1 Appendix A shows the national data by province. 1 Early Childhood Education and Care in Canada 2008 (8 th edition, June 2009), Childcare Resource and Research Unit. 2

7 3. Municipal Child Care Policies (OCPs, Community Plans and Social Plans) Municipal staff were asked which of the following were true: (a) a child care strategy has been adopted by the municipality; (b) child care is addressed in the Official Community Plan; (c) child care is addressed in the social plan (for municipalities with a social plan); and (d) child care is identified as a community amenity. A summary of the results are presented in Table 2. Results by municipality are presented in Appendix A. The following six municipalities have a child care strategy approved for the municipality: Burnaby New Westminster North Vancouver City Richmond Vancouver West Vancouver Nearly half of the municipalities have identified child care as a community amenity in policy documents to encourage the provision of child care facilities through the development approvals process. Ten municipalities identify child care objectives and/or policies within Official Community Plans. Five municipalities have a social plan that addresses child care provisions. Burnaby, the District of North Vancouver and Richmond have indicated their social plans are currently pending review. Table 2 Municipal Child Care Strategies, Plans and Policies in Metro Vancouver Number of Strategies/Plans/Policies on Child Care Municipalities Municipality has a Child Care Strategy 6 of 17 35% Official Community Plan shows commitment to Child Care Provision 10 of 16 63% Municipal Social Plan shows commitment to Child Care *** 5+ of 11 45% Child Care is identified as a Community Amenity 7+ of 17 41% * excludes data for Anmore, Belcarra, Bowen Island, UBC/UEL and Lions Bay ** Vancouver Charter does not require an OCP *** Five municipalities have adopted a Social Plan + indicates one or more municipalities are currently reviewing local policy 3

8 4. Zoning and Business License Bylaws that Affect Child Care Provision All municipalities in the region allow child care facilities in single detached residential zones and in public use and assembly zones. Outside of these three land use zones, municipalities vary significantly as to other land use zones where child care facilities may be located. (See Table 3 and Appendix A) A majority of municipalities allow child care in higher density residential zones such as duplex, row house and townhouse zones (12 of 17 municipalities) and Apartment zones (10 of 16 municipalities). Table 3. Zoning and Business License Requirements for Child Care Facilities in Metro Vancouver Number of Zoning and Business License Requirements (n=17) Municipalities Zoning Districts where Child Care is a Permitted Use: Single Family Residential Zones % Duplex (semi-detached) Residential Zones 12 71% Row House / Townhouse Zones 12 71% Apartment Zones (n=16) 10 63% Mixed Use Zones (n=16) 11 69% Commercial Zones 13 76% Public Use / Assembly Zones % Industrial Zones (n=16) 7 44% Agricultural Zones (n=14) 5 40% Additional Zoning or Licensing Requirements: Additional Parking is required for Home-based Child Care 5 40% Municipal Business License is required for Child Care Use ** 13 76% Non-Resident child care staff are permitted 13 76% Additional outdoor play space requirements/recommendations above provincial standards 4 (access) 24% Additional building requirements beyond the BC Building Code 0 n/a * excludes data for Anmore, Belcarra, Bowen Island, UBC/UEL and Lions Bay ** North Vancouver District requires a business license if 3 or more children Most municipalities allow child care facilities in non-residential zones other than public use or assembly zones, 13 of 17 municipalities allow child care facilities in Commercial zones, seven allow child care in Industrial zones, and five allow child care in Agricultural zones. (Note: not all municipalities have agricultural zoned lands). Although all municipalities allow child care facilities in single detached zones, the number of child care spaces permitted varies. Eight municipalities limit the number of child care spaces to 7 or 8 spaces. Five municipalities permit up to 10 child care spaces in the single detached zones. Five municipalities permit more than 10 child care spaces (North Vancouver City, North Vancouver District, Port Coquitlam, West Vancouver, White Rock) permitting from spaces although public consultation and/or a parking impact study may be required. Most municipalities require a municipal business license to operate a child care service, however Vancouver, Richmond and Surrey do not. 4

9 The presence of on-site non-resident staff and parking are other issues addressed by municipal by-law or licensing. Most municipalities (13 of 17 responses) allow home-based child care services to have non-resident staff. Five municipalities have additional parking requirements for home-based child care uses. No municipalities require additional outdoor play space requirements beyond the provincial regulations. However, Surrey and Port Coquitlam require direct access to the outdoor play areas (not through lobbies or hallways) and Vancouver s Childcare Design Guidelines make several recommendations beyond provincial health and safety standards for indoor/outdoor space including designated activity areas and direct access to outdoors. No municipalities have building requirements beyond the provincial regulations. 5. Municipal Resources for Child Care Providers Municipalities assist and facilitate the provision of child care facilities in a number of ways. (See Table 4). Nearly half of the local governments have a staff person dedicated as a child care resource person for the municipality. Nine Metro Vancouver municipalities provide local information documents to assist residents seeking child care and/or people wishing to establish and operate child care facilities. (Note: Regional Health Authorities also have child care information documents available). Municipalities have also shown initiative by offering financial and other types of assistance for the provision of child care including operating grants and physical space in municipal facilities as well as financial support for child care resource and referral services. Two municipalities provide child care services directly. Table 4. Municipal Resources for Child Care Providers Number of Municipal Resources for Child Care (n=17) Municipalities Municipal staff resource dedicated to child care 7 41% Child Care design guidelines (for operators) 4+ 35% Child Care information documents (for residents) 9 53% Other Child Care documents (varies by municipality) 7 41% Municipal Grants available to child care providers 3 n/a Provide space in municipal buildings for child care facilities 3 n/a Municipality has a child care facility / program 2 n/a * excludes data for Anmore, Belcarra, Bowen Island, UBC/UEL and Lions Bay 5

10 6. Municipality Identified Barriers to Child Care Municipalities most frequently identified inadequate capital funding from federal and provincial governments as a barrier to increasing child care spaces. The following were noted by some municipalities as barriers to providing more child care spaces: limitations in zoning by-law to locating child care facilities in a variety of land use zones. restrictions for on-site non-resident staff in home-based child care facilities the cost to meet building code requirements for facilities with 10 or more children the requirement to provide outdoor play space in case-specific situations. 7. Opportunities and Next Steps This report shows that Metro Vancouver (and BC generally) has a lower rate of childcare spaces per 100 children age 12 and under than the Canadian average (16 compared to 18.5 respectively). Municipalities recognize that child care contributes to the social and economic well being of communities; it helps to support families, healthy child development and future economic growth and prosperity. Municipalities are taking many actions to increase the number of child cares spaces in their communities. Most municipalities permit small scale child care facilities in a range of residential and non-residential areas. Many have a child care strategy in place and/or recognize child care as a community amenity in the development approvals process. While all of these measures are helpful, the lack of provincial and federal funding for child care spaces poses a significant barrier to the creation of an adequate number of child care spaces. Given the importance of child care to the region, a number of issues were identified for future work. The following items have been identified for the TAC Social Issues Sub-committee 2012 work plan: Continued advocacy for a provincial early care and learning plan accompanied by major capital funding for day care spaces On June 24, 2011, Metro Vancouver endorsed the Early Care and Learning Plan proposed by the Coalition of Child Care Advocates of British Columbia and the Early Childhood Educators of British Columbia and encouraged all municipalities to do the same. The Social Issues Subcommittee will advise Metro Vancouver if/when further advocacy on the Plan and funding for child care may be appropriate. Identifying best practices for facilitating daycare in single detached housing Single detached housing is a common location for home daycares, but it can also raise community concerns due to potential traffic, parking and other issues. The Social Issues Subcommittee will investigate best practices and report back to the Metro Vancouver Technical Advisory Committee 6

11 Appendix A: A Snapshot of Municipal Child Care Spaces and Policies in Metro Vancouver (January and June) * Burnaby Coquitlam Delta Langley City Langley Twnshp Maple Ridge New Westminster North Van City North Van District Pitt Meadows Port Coquitlam Port Moody Richmond Surrey Vancouver West Vancouver Child Care Inventory No. of Child Care Spaces - Total * 4,456 3,369 2, ,494 2,205 1,337 1,239 2, , ,580 6,440 11,504 1, ,026 Group Child Care (under 36 months) ,070 Group Child Care (30 months to school age) , , ,367 Preschool (30 months to school age) ,195 3, ,518 Group Child Care (School Age): , , , ,460 Family Child Care , ,765 Multi-Age Child Care In-Home Multi-Age Child Care Multi-Service Program 1,505 1, ,443 1, n/a n/a 309 1, ,688 0 n/a ,958 Occasional Spaces Data for North Vancouver City and District, West Vancouver, Richmond and Vancover is from Vancouver Coastal Health as at July All other municpal data is from Fraser Health as at January * The number of child care spaces is in constant change. This data represents a snapshot in time, based on data provided by provincial health authorities. * Figures by category is licensed space capacity, from Health Authority data. The total does not include "occasional" spaces. Planning and Policy Child Care Strategy (or Policy such as District of North Van) Yes No No No No No Yes Yes No No No No Yes pending Yes Yes No 6 Child Care is addressed in OCP Yes Yes No No No Yes Yes Yes Yes No Yes Yes Yes pending n/a Yes No 10 Child Care is Addressed in Social Plan Yes n/a n/a No n/a n/a n/a Yes pending No n/a n/a Pending Yes Yes Yes n/a 5 Child Care is defined as Community Amenity Yes No No No No No Yes considering Yes No Yes No Yes No Yes Yes No 7 Staff resource dedicated to Child Care work Yes No No No No No Yes Yes Yes No No No Yes No Yes Yes No 7 Child Care Design Guidelines (Operator) No No No No No No Yes Yes Yes No No No Pending No Yes pending No 4 Child Care Information Documents (Resident) Yes Yes No No No No Yes Yes No Yes No Yes Yes Yes Yes No 9 Other Policy items for Day Care Yes No No No No No Yes Yes Yes No No No Yes Yes Yes No No 7 Regulatory Requirements Are non-resident staff permitted in home-based daycare? No Yes No Yes Yes Yes No Yes Yes Yes Yes Yes Yes Yes Yes Yes 13 Municipal Building Code Requirements * No No No No No No No No No No No No 0 Outdoor Space requirements * No No No No No No Yes Yes No Yes Yes 1 No 3+ * requirements beyond those in the provincial legislation. 1 Design guideline recommendation Zoning: Is daycare use permitted? Residential zones: Single Detached Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes 17 Duplex Yes Yes No No Yes Yes Yes Yes Yes No Yes No Yes Yes Yes Yes No 12 Row Townhouse Yes Yes No No Yes Yes Yes Yes Yes No Yes No Yes Yes Yes Yes No 12 Apartment Yes Yes No No No Yes Yes Yes No Yes No Yes Yes Yes Yes No 10 Mixed use / CD Zones Yes Yes No No Yes Yes Yes Yes Yes No Yes No Yes Yes Yes No 11 Other No No Commercial zones No Yes No Yes Yes Yes Yes Yes Yes No Yes No Yes Yes Yes Yes Yes 13 Public Assembly Zones Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes 17 Industrial zones No No No No Yes Yes Yes Yes No No No Yes Yes Yes n/a No 7 Agriculture No No No No No Yes n/a Yes n/a Yes Yes No Yes No No n/a No 5 Other No Yes Parking requirements - accessory use daycare No No Yes Yes No Yes No Yes No Yes No 5 Business Licence Requirements Municipal business licence required Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes No No No Yes Yes Required when more than XX children Yes Yes Traffic management plan No Yes * No No No No Yes * Yes ** Yes ** No Yes * Yes* No Yes Yes No 2+ Public consultation No No No No No No Yes * Yes Yes ** No Yes * Yes* Yes * No Yes No 2+ Other license requirements No No No No No Yes Yes Yes ** No 2+ * if rezoning ** more than XX spaces Perceived Barriers ("Barriers" are perceived obstacles to the provision of childcare as identified by planning staff. ) Policy Provincial Barrier Barrier 2 Municipal Barrier Barrier Zoning 3 Other 0 Funding Barrier 1 Federal Barrier Barrier Barrier Barrier Barrier Barrier 6 Provincial Barrier Barrier Barrier Barrier Barrier Barrier Barrier Barrier 8 Municipal 0 Other 0 Building Code Barrier Barrier Barrier Barrier 4 Zoning Code Barrier Barrier Barrier Barrier Barrier 5 Other affordability affordability 3 White Rock Total

12 Vancouver White Rock Total Burnaby Coquitlam Delta Langley City Langley Twnshp Maple Ridge New Westminster North Van City North Van District Pitt Meadows Port Coquitlam Port Moody Richmond Surrey Vancouver West Financing Tools Federal Partnerships No Yes No No Provincial Partnerships No No No Yes Yes Private Partnerships No Yes No No Yes Municipal Grants No No No Yes Yes No No Yes Yes Other Financial Items - Operating Costs Yes No No Yes Other Financial Items Yes low lease No No - Facility Acquisition/Maintainance density bonus Muni space Tax exemptions Muni Site

13 TABLE 9 Regulated child care spaces by province/territory and percentage of children (0-12 and 0-5) for whom there is a regulated child care space 2008 Province/ Centre-based School-age Regulated Total Children Children Territory full- and part-day child care family regulated 0-12 for 0-5 for child care for 0-5 child care 1 spaces 0-12 whom there whom there is a regulated is a regulated full or part- time centrebased space (%) child care space (%) Newfoundland & 4, , Labrador Prince Edward Island 2 3, , Nova Scotia 10,913 2, , New Brunswick 7,999 7, , Quebec 117, ,992 88, , Ontario 159,604 81,292 19, , Manitoba 15,970 7,574 3,645 27, Saskatchewan 5, ,330 9, Alberta 42,832 19,482 11,667 73, British Columbia 44,670 28,233 14,635 87, Northwest Territories , Nunavut , Yukon Territory , Canada 415, , , , Number of children in regulated family child care by age group are usually not available. 2 For the purpose of comparison with other provinces, part-day kindergarten spaces are excluded from the calculations for Prince Edward Island. 3 The total does not equal the sum of the age groups shown, as a result of alternate capacity rooms. The total represents the estimated licensed capacity in centres and enrolment in family child care. See the Ontario chapter for further information. 4 Yukon provided total occupied spaces and total regulated spaces, but breakdown by type of service only for occupied spaces. Thus, the sum of centre-based, school-age, and family child care spaces do not equal the total regulated spaces above. Total regulated spaces have been used in all totals and calculations. Childcare Resource and Research Unit The Big Picture 183