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Introduction and methodology

Child Care Now’s Innovation Project: Growth by Design is exploring, evaluating, and proposing innovative strategies to enhance the sustainability and expansion of public and not-for-profit Early Learning and Child Care (ELCC) in Canada. As part of this initiative, seven case studies – in Newfoundland and Labrador, Prince Edward Island, Nova Scotia, Ontario, Manitoba, British Columbia, and Nunavut – have identified promising approaches to ELCC expansion and exploring policies and practices that enhance equitable access for families.

The case studies focused primarily on the expansion of public and not-for-profit ELCC services – both physical and operational – but they also encompass the broader policy and programmatic environment that enables or constrains growth. 

This document provides an overview of the ELCC landscape in British Columbia and outlines the province’s key commitments under the Canada-wide Early Learning and Child Care (CWELCC) funding agreement relevant to expansion. It also reports on the British Columbia case study activities, which included: 

• A thorough review of government websites and documents, policy frameworks, and public reports related to ELCC;
•  Compilation and analysis of relevant data from successive editions of Early Childhood Education and Care in Canada;
•  Key informant interviews and meetings with provincial government officials, provincial child care associations, ELCC administrators, and other key stakeholders; and
• Site visits to a range of ELCC programs, providing insights into local implementation, infrastructure, and experiences with expansion.

The context for early learning and child care in British Columbia

According to the 2021 Census, British Columbia had a population of 5,000,879, representing a 7.6% increase from 2016 and significantly outpacing the national growth rate of 5.2%. By the last quarter of 2025, provincial estimates placed the population at approximately 5.7 million. However, in the first quarter of 2026, the population declined slightly (–0.4%), largely reflecting changes to federal immigration policies.

In 2021, there were approximately 609,500 children aged 0 – 12 in the province; this number increased to 625,500 by 2024. Maternal labour force participation rates remain high. In 2021, 75% of mothers with a youngest child aged 0 – 5 were in the labour force, rising marginally to 75.3% by 2024. Among mothers with a youngest child aged 6 – 12, participation declined slightly from 83.2% in 2021 to 82.2% in 2024.¹

Responsibility for ELCC in British Columbia is shared across multiple ministries. The Ministry of Education and Child Care is responsible for kindergarten, child care policy, and capital and operating funding, as well as for the certification of early childhood educators (ECEs) through the ECE Registry. Licensing, monitoring, and complaint investigation are carried out by five regional health authorities under the Ministry of Health. The Ministry of Children and Family Development is responsible for programs and supports related to inclusive child care for children with additional support needs.

Recent history of early learning and child care in British Columbia

Child Care Resource and Referral programs

Child Care Resource and Referral (CCRR) programs, first introduced in British Columbia in the early 1990s, are a foundational component of the province’s child care system. They were established to address two key gaps: limited support for home-based providers and a lack of accessible information for families seeking child care. Over time, CCRRs have evolved into a core piece of system infrastructure, supporting both service development and system navigation.

As of April 2024, there were 68 primary and satellite CCRR locations serving approximately 170 communities across the province. CCRRs provide free information and referral services to families, including up-to-date listings of licensed child care spaces and support in understanding and navigating different types of care. They also assist families with applications for the Affordable Child Care Benefit, the fee subsidy for low and moderate-income families.

CCRRs play a particularly important role in the regulated family child care sector, where they support the recruitment and development of providers, assist unlicensed providers to transition into the regulated system, and offer access to training, mentorship, and ongoing technical and pedagogical support. CCRRs also facilitate networking opportunities and provide access to equipment and resources, aimed at contributing to both quality improvement and system growth.

Introduction of full-day kindergarten for five-year-olds

In 2009, British Columbia announced the introduction of full-day kindergarten for five-year-olds, to be implemented over a two-year period. The initial phase began in September 2010, with approximately half of kindergarten programs transitioning to full-day delivery. Full implementation was achieved in September 2011. This policy shift significantly expanded access to early learning within the public education system and had important implications for the child care sector, particularly in relation to demand for care for younger age groups.

Child Care Major Capital Funding Program

In May 2014, the province launched the Child Care Major Capital Funding Program, marking a significant step toward expanding licensed child care spaces through direct capital investment. The program provided provincial contributions toward facility development, covering up to 90% of project costs for centres located on school grounds and up to 75% for other projects. Maximum funding amounts were set at $500,000 for not-for-profit organizations and $250,000 for for-profit operators.

ChildCareBC: A plan to move toward universal child care

Historically, British Columbia’s child care system has been largely market-based, characterized by uneven access, high parent fees, a significant for-profit presence, and limited public planning or funding. The May 2017 general election marked a turning point, resulting in the election of a minority British Columbia New Democratic Party government, supported by the Green Party of British Columbia. Child care was a prominent election issue, with both of these parties committing to substantial reform and to building a universal child care system over a 10-year period.

In April 2018, the province introduced a comprehensive policy framework through ChildCareBC: Caring for Kids, Lifting up Families, which set out a long-term vision for a more coordinated and publicly supported system grounded in affordability, access, and quality. Initial investments totalled approximately $1 billion over three years and focused on reducing parent fees, expanding licensed spaces, and strengthening the workforce.

The first steps toward the vision included:  

• The introduction of $10aDay child care through a limited number of application-based “universal child care prototype sites,” with federal funding received through the Canada-BC bilateral ELCC agreement. Initially, approximately 1,800 spaces were funded in both not-for-profit and for-profit centres and in family child care homes;
• Fee reductions through the Child Care Fee Reduction Initiative of up to $350/month for group care and up to $200/month for family child care for infant and toddler care; and up to $100/month for group care and up to $60/month for family child care for children 3 – 5 years; 
• Increased fee subsidies, renamed the Affordable Child Care Benefit. Maximum monthly fee subsidies increased from $750 to $1,250 for group infant care and from $635 to $1,060 for group toddler care. The rates for children 3 – 5 years and for school age care remained unchanged at $550/month and $210/month respectively;
• Increased eligibility for fee subsidies: families earning up to $45,000/year were eligible for the maximum fee subsidy. Fee subsidies were reduced by a percentage of annual household income over $45,000, up to $111,000, when eligibility for a partial subsidy ceased; 
• As part of a recruitment and retention strategy, the ECE Wage Enhancement (ECE-WE) $1/hour wage enhancement for certified ECEs working in licensed child care was introduced;² and
• The ChildCareBC New Spaces Fund was introduced in July 2018 to provide capital funding for the creation of new licensed spaces. Public sector entities could receive up to $1 million, not-for-profit operators up to $500,000, and for-profit operators up to $250,000.

ChildCareBC New Spaces Fund and Community Planning Initiatives

Capital investment was also a central component of the strategy. The ChildCareBC New Spaces Fund, launched in July 2018, provided funding for the creation of new licensed spaces, with higher maximum allocations for public and not-for-profit operators than for-profit operators.

The ChildCareBC New Spaces Fund was introduced to support the creation, expansion, and relocation of licensed child care spaces, with a target of up to 22,000 new spaces. Funding was made available to public sector organizations, Indigenous governments, not-for-profit societies, and for-profit operators, with higher levels of support directed toward public and not-for-profit delivery.

In 2019 – 2020, capital funding provided:

• up to $3 million (covering 100% of project costs) for public sector and Indigenous government projects;
• up to $1.5 million (100% of project costs) for Indigenous not-for-profit societies;
• up to $1.5 million (90% of project costs) for other not-for-profit organizations; and
• up to $250,000 (75% of project costs) for for-profit operators.

Eligibility for funding required participation in provincial operating and fee reduction programs and demonstrated organizational capacity. Priority was given to projects that aligned with community child care plans, were led by public or not-for-profit organizations, were located on school grounds, supported non-standard hours, or demonstrated cost efficiency.

Integration of child care into the Ministry of Education

Responsibility for child care was transferred from the Ministry of Children and Family Development to the newly formed Ministry of Education and Child Care in April 2022, following its announcement in the February 2022 Speech from the Throne.

This shift was intended to better align ELCC with the K – Grade 12 school system and to support a more coordinated and planned system, rather than one divided across ministries. Government messaging emphasized that just as public education offers universal, reliable access, the goal was to bring a similar level of stability and accessibility to child care.

The move also reflected longstanding recommendations from the sector, including those advanced through the $10aDay Child Care Plan,³ which has consistently called for the integration of child care within the education system as a key step toward building a more publicly managed system.

In 2024, the province provided $2 million over two years to three school districts – Nanaimo, Nechako Lakes, and Chilliwack – to create new licensed school-age spaces, utilizing existing school space and staff.

Further progress toward this integration was made on October 27, 2025, when the province passed Bill 19, amending the School Act. These amendments expanded the authority of boards of education, enabling school districts not only to provide space for child care but also to directly operate licensed child care programs on school property, including programs serving infants, toddlers, and preschool-aged children.

The Canada-British Columbia Canada-wide Early Learning and Child Care agreement

The policy framework established through ChildCareBC positioned British Columbia to move quickly in implementing the federal CWELCC initiative, with a clear foundation for system expansion and reform. British Columbia was the first jurisdiction to sign a CWELCC agreement, doing so on July 8, 2021.

The initial agreement allocated approximately $3.2 billion in federal funding over five years, with annual transfers increasing from $352 million in 2021 – 2022 to approximately $927 million by the fifth year. Under its first Action Plan, the province committed to a range of measures aimed at expanding access, improving affordability, and strengthening inclusion.

A central commitment was the creation of 30,000 new regulated spaces for children aged 0 – 5 by 2025 – 2026, increasing to 40,000 by 2027 – 2028. The province also committed to accelerating space creation through investments in planning and design, including the exploration of modular construction approaches. In parallel, the agreement emphasized expanding access to Indigenous-led child care and increasing the availability of inclusive services through Supported Child Development and Aboriginal Supported Child Development programs.

Affordability measures were also a key focus. British Columbia committed to expanding $10aDay child care spaces on an application basis, with the goal of achieving $10 a day care for children aged 0 – 5 within five years, prioritizing families facing greater barriers to access. Enhancements to the Child Care Fee Reduction Initiative were available to centres and homes that were not approved for $10aDay status, intended to reduce out-of-pocket fees for families by approximately 50%.

The agreement also included targeted investments to expand Indigenous-led child care, including the transition of some programs to a no-fee Aboriginal Head Start model, the creation of new Indigenous-led spaces across a range of auspice types, and the development of a Métis CCRR program to support training, coordination, and access.

A renewed agreement was signed in March 2025, committing $5.38 billion in federal funds for the 2026 – 2031 period.

Space expansion between 2019 and 2025⁴

British Columbia has experienced substantial growth in licensed, centre-based child care capacity for both children aged 0 – 5 and school-age children. As shown in Figure 1, the province added more than 47,000 licensed centre-based spaces between 2019 (the CWELCC baseline year) and 2025.

As shown in Figure 2, growth in licensed family child care spaces was relatively modest, with an increase of approximately 1,000 spaces between 2019 and 2025. Despite this growth, the proportion of total licensed spaces represented by family child care declined from 10.4% to 8.3% over the same period.

BC’s initial CWELCC Action Plan states that “new spaces will be focused on community investments that are long term and run by public and not-for-profit institutions.”⁵ However, as shown in Figure 3, while centre spaces have increased across all auspice types, growth has been greater in the for-profit sector than in the not-for-profit and public sectors.

The growth in for-profit care is even more pronounced for full-day spaces for children aged 0 – 5. As shown in Figure 4, between 2019 and 2025 there was an increase of 23,463 for-profit spaces, compared to 9,375 in the not-for-profit and public sectors combined. By 2025, there were more than twice as many full-day for-profit spaces as not-for-profit and public spaces.

Figure 5 shows a divergence in trends by program type: while the proportion of for-profit provision declined slightly in part-day preschool- and school-age spaces, it increased by approximately four percentage points in full-day spaces for children aged 0 – 5, from 63.8% in 2019 to 66.9% in 2025.

Findings from the case study meetings

The case study findings were informed by a week-long visit to British Columbia, including Vancouver, West Vancouver, Surrey, Nanaimo, and Victoria. The visit included consultations with provincial government and school board officials, key stakeholder groups, and multi-site not-for-profit child care operators. 

Meetings and interviews for the case study were conducted between March 9 and March 13, 2026, with the following organizations: 

• West Vancouver School District;
• Nanaimo–Ladysmith School District;
• BC Aboriginal Child Care Society;
• Métis Nation BC;
• Aboriginal Head Start Association of BC;
• Vancouver Society of Children’s Centres;
• Association of Neighbourhood Houses of BC;
• UBC Child Care;
• YMCA of Greater Vancouver;
• Early Childhood Educators of BC; 
• Coalition of Child Care Advocates of BC; and
• Child Care Division, Ministry of Education and Child Care.

The sections that follow provide brief organizational profiles and identify cross-cutting issues identified by type of organization. The organizations and public entities are grouped into four categories: school districts, Indigenous organizations, multi-site child care operators, and key provincial ELCC organizations. 

The challenges and opportunities identified by participants offer insight into how different delivery models – public, not-for-profit, and Indigenous-led – are contributing to the expansion of ELCC in British Columbia, as well as the system-level conditions shaping their capacity to grow. The final section presents a summary of the current provincial policy approaches and key challenges identified by the Ministry of Education and Child Care.

School district-led expansion

The experiences of the West Vancouver School District and the Nanaimo–Ladysmith School District illustrate the evolving role of school boards as key partners, and in some cases, direct operators, in the expansion of ELCC in British Columbia. 

While the two districts differ in scale and delivery approach, together they highlight the opportunities and constraints associated with embedding child care within the public education system.

West Vancouver School District

West Vancouver School District has adopted an integrated and strategic approach, positioning child care as a core component of its public education mandate, although it does not directly operate any child care programs. 

Child care is embedded within the Board’s strategic plan and supported by dedicated district-level leadership focused on early years integration. The district has a long-standing commitment to maintaining and expanding child care within schools, toward a goal of near-universal provision of before- and after-school care across elementary sites.

Expansion has been pursued in a coordinated and system-level way. The district has developed a hub model for new child care facilities, used modular construction to accelerate development, and established standardized lease and cost-recovery arrangements for not-for-profit operators. A defining feature of the approach is its emphasis on integration, both operationally and culturally. The district has worked to align principals, educators, and operators, and to position children in child care programs as part of the broader school community. However, it is important to note that since public sector wages are higher than what would be covered by the Child Care Operating Fund, or $10aDay operational funding, the school district leases space to not-for-profit operators rather than directly operate child care themselves.

Importantly, West Vancouver has worked to shift culture within schools by:

• positioning children in child care programs as “our children”; and
• building strong alignment between principals, educators, and operators.

Nanaimo–Ladysmith School District

Nanaimo–Ladysmith School District has taken a more incremental and operationally focused approach than other school districts, with a strong emphasis on direct service delivery, particularly for school-age care. The district directly operates several of its own before- and after-school programs, primarily employing unionized educational assistants and other school district employees to staff the programs. This has addressed the challenge of recruiting qualified employees faced by many other child care operators, and gives the employees increased hours of work, eliminates split shifts, and creates more stable employment opportunities.

Growth has occurred gradually, beginning with a pilot and expanding to multiple sites, supported by federal and provincial funding. The district has established centralized management structures to oversee programs and has adopted a cost-recovery model with fees set below market levels. There is also a strong focus on inclusion, with additional supports for children with diverse needs.

At the same time, the district is expanding the provision of licensed child care for younger children through modular builds, typically using not-for-profit operators for these programs. It is also developing tools and guidance to support broader system implementation.

The district has:

• expanded from a small pilot to multiple sites;
• leveraged federal and provincial grants to initiate and sustain programs;
• adopted a cost-recovery model, with fees set below median levels; and
• prioritized inclusion and support for children with additional needs.

In addition, Nanaimo–Ladysmith:

• requires not-for-profit operators for new licensed spaces;
• is actively expanding licensed infant/toddler and 3 – 5 spaces through modular builds; and
• is developing tools (e.g., provincial handbook) to support system-wide implementation.

Common issues and challenges in the two school boards

Across both districts, a consistent set of challenges has emerged, reflecting broader system dynamics.

School districts are well positioned to support expansion, given their access to publicly owned infrastructure, proximity to families, and potential for integrated service delivery. However, they do not have a formal mandate to support expansion, and their role is constrained by existing funding and governance frameworks. Education funding cannot readily be used for child care, and districts face limitations in directly operating licensed programs for younger children. As a result, they function in hybrid roles, acting as facilitators, landlords, and, in some cases, direct operators.

Workforce constraints are a significant and persistent barrier. Even where demand is strong, programs cannot expand or operate at full capacity without sufficient staff. Districts have responded by creating new roles, extending hours for existing staff, and introducing float or relief positions, but these measures only partially address the issue.

Capital development also remains complex. While both districts have accessed funding and made use of modular construction, they face long timelines, uncertainty about future funding, and the need to reconcile education and licensing requirements. Modular approaches have accelerated space creation but do not resolve underlying challenges related to operating funding or workforce availability.

Partnerships with not-for-profit operators – while essential – require ongoing coordination and management. Ensuring alignment with district priorities, supporting principals in managing relationships, and maintaining consistent quality across sites all require sustained effort. Both districts emphasized the importance of clear expectations and strong relationships to support effective integration.

School boards offer a critical foundation for publicly supported growth, particularly through access to land and integration with communities. However, their ability to act as fully public operators is constrained by existing policy and funding frameworks.

The contrast between West Vancouver’s strategic, system-level approach and Nanaimo–Ladysmith’s incremental, operational model highlights different pathways to expansion within the same provincial context. Overall, the experience of these districts suggests that school-based expansion should play a central role in system development, but realizing its full potential will require more integrated policy frameworks, stable funding, and stronger alignment between education and child care systems.

Indigenous organizations

BC Aboriginal Child Care Society 

The BC Aboriginal Child Care Society (BCACCS) is a province-wide Indigenous not-for-profit that plays a central role in the development of First Nations ELCC in British Columbia. It functions primarily as a system enabler and intermediary rather than a direct operator, supporting approximately 160 First Nations communities to design and deliver programs aligned with local priorities.

BCACCS administers and allocates Indigenous ELCC funding, directing investments toward access, quality, and community capacity-building. Its work is grounded in government-to-government relationships and reflects First Nations jurisdiction over service delivery. Core functions include community planning support, governance development, workforce initiatives, and policy alignment.

Key challenges include misalignment between Indigenous program models and provincial licensing frameworks, uneven wage structures, and the complexity of multiple funding streams. Expansion occurs through community-identified needs and priorities, resulting in culturally grounded but variable growth across communities.

Métis Nation BC

Métis Nation BC (MNBC) is the governing body responsible for Métis-led ELCC in British Columbia, operating within a distinctions-based framework grounded in self-determination. With a large and growing organizational structure, MNBC works through partnerships rather than direct service delivery, supporting Métis organizations and communities to develop and operate child care programs.

Since 2022, MNBC has supported the creation of more than 200 new child care spaces, funded through federal and provincial agreements. A defining feature of the model is full operating funding, allowing many programs to operate without parent fees. Expansion is community-driven and often relies on partnerships to secure land, including with municipalities, school districts, and other institutions.

MNBC has invested significantly in workforce development and family supports, including education funding for ECEs and direct financial benefits for families. Key challenges include workforce shortages, complex partnerships, limited participation of Métis children in mainstream CWELCC programs, and the absence of a dedicated land base.

Aboriginal Head Start Association of BC

The Aboriginal Head Start Association of BC (AHSABC) is a provincial not-for-profit that supports the expansion of culturally grounded, Indigenous-led early learning programs based on the Aboriginal Head Start model, particularly in urban and off-reserve communities. It works with 34 Indigenous organizations across 28 communities and plays a central role in transitioning programs from part-day preschools to full-day, licensed child care.

Since 2018, AHSABC has supported the development of over 850 licensed spaces with new public funds, and additional spaces are in development. Programs are fully funded and offered at no cost to families, with integrated wraparound supports such as nutrition, early intervention, and family services.

AHSABC provides centralized financial administration, technical assistance, workforce development, and quality assurance, while minimizing administrative burden on local programs. The model emphasizes high staffing ratios, cultural programming, and continuous evaluation.

Key challenges include workforce shortages, rising capital costs, and the complexity of funding arrangements. Expansion is community-led and relational, with strong emphasis on maintaining quality and cultural integrity.

Cross-cutting issues across Indigenous organizations

Across BCACCS, MNBC, and AHSABC, several consistent themes emerged regarding the development and expansion of Indigenous ELCC in British Columbia.

Distinctions-based, community-led approaches

All three organizations operate within distinctions-based frameworks that recognize First Nations, Métis, and urban Indigenous governance and priorities. Expansion is driven by community-identified needs rather than centralized planning or market demand, reflecting principles of self-determination and local control.

Expansion as system-building, not just space creation

In all cases, expansion is understood as part of broader system-building. This includes strengthening governance, developing workforce capacity, and embedding cultural knowledge and language within programs. Indigenous stakeholders noted that growth may be more complex and, at times, slower or uneven compared to other not-for-profit models.

Central role of intermediary organizations

Each organization plays a critical intermediary role, allocating funding, supporting program development, and building capacity at the community level. This model reduces administrative burden on local operators while enabling coordinated expansion aligned with community priorities.

Workforce development as a core priority and constraint

All three organizations identified workforce recruitment and retention as a major challenge. While significant investments have been made in training, wages, and professional supports, shortages persist and limit both expansion and the ability of programs to operate at full capacity.

Flexible and mixed funding models

Funding structures are complex and vary across organizations, often combining federal, provincial, and program-specific streams. Some programs operate without parent fees, while others include fee-based components. This flexibility supports community needs but also creates administrative complexity and challenges in tracking investments.

Misalignment with provincial systems

A consistent issue is the misalignment between Indigenous approaches and provincial systems, particularly licensing frameworks and funding models. These systems are often viewed as insufficiently flexible to accommodate culturally grounded programming and Indigenous governance structures.

Importance of partnerships

Partnerships – with governments, municipalities, school districts, and community organizations – are essential across all models. In particular, partnerships are critical for accessing land and infrastructure, especially for Métis and urban Indigenous programs.

Equity and access considerations

All organizations emphasized the importance of equitable access, particularly for underserved populations. However, reliance on community-driven and partnership-based expansion can result in variability in access across regions.

Overall insight

Together, these models illustrate a fundamentally different approach to child care system development, one that prioritizes Indigenous jurisdiction, cultural relevance, and community capacity. While these approaches offer strong foundations for equitable and culturally appropriate services, their success depends on continued alignment of funding, policy frameworks, and workforce strategies with Indigenous-led priorities.

Child care operators 

Vancouver Society of Children’s Centres

The Vancouver Society of Children’s Centres (VSOCC) is a large, single-purpose not-for-profit organization created to develop and operate child care in City of Vancouver-owned facilities negotiated with developers as part of the City’s land use planning process. Established in 1994, it operates approximately 773 spaces across 15 centres, with additional growth tied to new developments.

Its defining feature is its formal partnership with the City, including access to publicly owned space and favourable lease arrangements. VSCC plays a key role in integrating child care into urban development processes, often participating in planning and design of new facilities.  All its currently operating centres for children 0 – 5 years are $10aDay programs. 

Expansion has become increasingly dependent on private development, with new spaces tied to growth in high-density areas. While this model supports coordinated development, it limits the ability to direct expansion to underserved communities. It also often concentrates new facilities on specific land parcels that are on or near major roadways and in towers, which may limit access to green space and can limit the quality of the outdoor space provided. 

Workforce availability and uncertainty in start-up funding – particularly for new centres not yet eligible for $10aDay funding – remain ongoing challenges.

Association of Neighbourhood Houses of BC 

Association of Neighbourhood Houses of BC (ANH) is a large, multi-service not-for-profit operating through a distributed network of neighbourhood houses. With over 2,600 child care spaces, a $68 million budget, and approximately 1,000 staff, it combines centralized coordination with strong local autonomy.

Child care is embedded within broader community services, supporting responsive, locally tailored programming. Expansion has historically been community-driven, though ANH is moving toward more coordinated planning across sites.

Despite its scale, ANH faces challenges related to workforce shortages, uneven integration into CWELCC funding (with only some programs at $10 a day), and administrative fragmentation, as funding systems treat individual sites as separate entities. These factors limit its ability to operate as a fully coordinated system-level operator.

University of British Columbia Child Care

The University of British Columbia (UBC) operates one of the largest institutionally integrated child care systems in North America, with approximately 1,033 spaces across its Vancouver campus. Child care is embedded within university infrastructure and planning, supporting students, faculty, staff, and the surrounding community and delivered through a coordinated system.  Centres directly operated by UBC, are on designated academic lands. These lands include the main campus and institutional areas where UBC develops and oversees child care as part of its broader academic and community infrastructure. The surrounding residential neighbourhoods on the UBC endowment lands are governed by the University Neighbourhoods Association (UNA), a separate entity responsible for municipal-type services and community planning within those neighbourhoods. the UNA is responsible for securing and managing child care programs within the neighbourhoods. 

Expansion is highly planned and aligned with long-term campus development through the university’s Child Care Expansion Plan, which is updated every 5 – 10 years.⁶ Growth is integrated into capital projects, including academic buildings as well as housing in the university neighbourhoods, and supported through a mix of provincial funding, university investment, and development contributions. All but the most recently opened centres are $10aDay. 

While this model offers stability, access to land, and long-term planning capacity, expansion is constrained by workforce availability, capital priorities, and limited space. Demand continues to exceed supply, with significant waitlists.

YMCA BC

The YMCA is a major not-for-profit operator, with 141 centres and approximately 5,200 spaces across British Columbia. Following a 2023 amalgamation, the YMCA of Greater Vancouver, YMCA of Northern BC, and Kamloops Community YMCA-YWCA formed YMCA BC, which has strengthened its scale and organizational consistency.

Expansion occurs primarily through partnerships with school districts and municipalities, often in response to public procurement processes. The YMCA emphasizes sustainability, using formal business case analysis before pursuing new projects.

Key constraints include workforce shortages – particularly in rural areas – high capital and start-up costs, and financial pressures associated with leased facilities. This resulted in two YMCA locations on the Sunshine Coast closing in 2025, with little warning for families. The organization also identified system challenges related to uneven funding (e.g., $10aDay vs. non-participating programs), limited support for school-age care, and gaps in inclusion funding.

Cross-cutting themes across not-for-profit operators

The experiences of large not-for-profit and public-affiliated child care organizations in British Columbia provide important insight into how expansion is occurring in practice under CWELCC. Across these organizations, a consistent set of themes emerged regarding the conditions required for expansion, the constraints faced by operators, and the evolving role of not-for-profit organizations within the system. 

Expansion is cautious, structured, and partnership-driven

Across all organizations, expansion is no longer opportunistic or rapid, but deliberate and conditional. Operators emphasized the importance of long-term sustainability, often requiring formal business case analysis, secured operating funding, and workforce capacity before proceeding with new sites.

Expansion is also highly dependent on partnerships with municipalities, school boards, developers, or institutions. Whether through City-led development (VSOCC), institutional planning (UBC), community-based development (ANH), or service agreements (YMCA), growth is rarely independently driven. Instead, it is embedded within broader local planning and infrastructure systems.

Workforce constraints are a primary limiting factor

All organizations identified workforce availability – particularly the recruitment and retention of qualified ECEs – as the single most significant barrier to both expansion and ongoing operations.

Even large, well-established operators with relatively strong employment conditions reported challenges in:

• staffing new centres at opening; 
• maintaining full capacity in existing programs; and 
• recruiting for school-age programs and leadership roles. 

In some cases, organizations have developed internal strategies (e.g., training pipelines, float pools, multi-site staffing), but these measures only partially mitigate broader labour market constraints.

Capital and start-up funding remain major barriers

Despite increased public investment under CWELCC, organizations consistently identified capital costs and early operating deficits as significant constraints.

Common challenges include:

• high construction and development costs; 
• financial risk in the first years of operation; 
• reliance on time-limited or project-based capital funding; and 
• ongoing costs associated with leased or non-owned facilities. 

Models with access to public or institutional infrastructure (e.g., VSOCC, UBC) are comparatively more stable, highlighting the importance of publicly owned or controlled space in supporting expansion.

Expansion is shaped by external planning systems

A key theme across all organizations is that expansion is largely determined by external systems rather than operator initiative. Growth is tied to:

• local land-use planning and development processes (VSOCC); 
• institutional planning frameworks (UBC); 
• community-based service delivery models (ANH); and 
• public procurement and partnership opportunities, including with school districts (YMCA). 

As a result, expansion is not always aligned with areas of greatest need, contributing to uneven distribution of services. 

CWELCC has improved affordability but introduced new operational complexities

All organizations reported that CWELCC has significantly improved affordability for families and provided greater financial stability for participating programs. However, several challenges remain:

• uneven access across programs (e.g., not all sites are $10aDay); 
• financial pressures during start-up phases before eligibility; 
• administrative complexity and lack of transparency in processes; and 
• misalignment between funding structures and organizational models. 

The coexistence of $10aDay and non-$10aDay programs creates operational and equity challenges within and across organizations.

Organizational scale provides advantages, but does not resolve systemic constraints

Larger organizations benefit from centralized systems, administrative capacity, and economies of scale. However, scale does not overcome key barriers, including workforce shortages, capital constraints, operating funding shortfalls, and policy misalignment. 

This suggests that while scale supports stability and efficiency, it is not sufficient to drive system expansion without supportive public policy.

Not-for-profit operators play a central – but constrained – role in system building

Not-for-profit organizations are well-aligned with public policy goals related to quality, inclusion, and community responsiveness. They:

• deliver stable, high-quality programs; 
• contribute to system coordination and planning; 
• build partnerships across sectors; and 
• support broader community development objectives. 

However, their capacity to expand is constrained by: 

• reliance on external capital and planning processes; 
• limited control over where and how growth occurs; and 
• exposure to workforce and financial risks.

Overall insight

These findings suggest that while not-for-profit operators are essential to building a more publicly oriented child care system, their ability to expand is fundamentally shaped by system-level conditions. Achieving equitable and sustained growth will require stronger public planning, more consistent funding approaches, and targeted investments in workforce and infrastructure.

Key provincial organizations

Early Childhood Educators of BC

Early Childhood Educators of BC (ECEBC) plays an important enabling role in expansion by addressing one of the system’s primary constraints: workforce supply and capacity. Its programs support both entry into the field and skill development within it, contributing to incremental improvements in workforce availability.

Overview and role

Established in 1969, ECEBC is the province’s primary professional association for ECEs and has evolved into a key component of British Columbia’s ELCC system infrastructure. While initially focused on member services, it now plays a central role in workforce development, professional learning, sector engagement, and policy development.

A significant milestone was the receipt of provincial endowment funding in 2007 – 2008, which supported scholarships and strengthened organizational capacity. ECEBC has also played a leadership role in advancing sector policy, including contributions to the $10aDay Child Care Plan, and continues to act as a bridge between government, educators, and the broader sector.

Organizational structure and role

ECEBC operates as a provincial not-for-profit with a distributed structure, including approximately 16 full-time staff, 14 regional branches, and a network of consultants and sector ambassadors. As its role has expanded, the organization has begun adapting its governance model to reflect increased responsibilities. 

Its core functions are centred on workforce development and professional support. These include:

• administering large-scale bursary programs for students and current educators;
• supporting certification and specialized qualifications;
• delivering professional learning (including ethics, child safety, and Indigenous-informed pedagogy);
• providing mentoring and leadership development; and
• conducting labour market research on workforce supply, compensation, and standards.

The expansion of online delivery through the Early Learning Hub has significantly increased access to training, particularly in rural and remote communities.

Funding and scale of activity

ECEBC’s activities are largely funded through provincial program funding, supplemented by earlier endowment and foundation support. A major focus is bursary administration, with approximately 2,500 to 3,000 bursaries distributed per semester, representing a substantial investment in workforce development. Indigenous applicants are prioritized.

The organization also administers specialized certification grants for educators working with infants, toddlers, and children with additional support needs, and receives funding to deliver accessible, barrier-free professional development across the province.

Role in system expansion

ECEBC plays a critical enabling role in expansion by strengthening workforce supply, improving qualifications, and supporting retention. Its evolution from a professional association to a major delivery agent for publicly funded workforce initiatives reflects the increasing centrality of workforce policy to system development.

At the same time, its work highlights ongoing challenges, including persistent workforce shortages, uneven compensation, and gaps in qualifications, particularly in school-age care. These issues point to the need for more comprehensive workforce strategies as part of system expansion.

ECEBC occupies a distinctive position within British Columbia’s ELCC system, functioning simultaneously as a professional association, program delivery organization, and policy actor. Through this combination of roles, it serves as a critical bridge between government, the workforce, and the broader sector, underscoring the central role of workforce development in achieving sustainable system growth. 

The Coalition of Child Care Advocates of BC

The Coalition of Child Care Advocates of BC (CCCABC) is the province’s leading policy, research, and advocacy organization focused on advancing a universal, publicly funded ELCC system. Unlike workforce-focused organizations such as ECEBC, CCCABC operates primarily as a system-level policy actor, shaping the direction of reform through research, advocacy, and coalition-building. 

Origins and role in system design

CCCABC has played a foundational role in developing the policy architecture for child care reform in British Columbia. In partnership with ECEBC, it co-developed the Community Plan for a Public System of Integrated Early Care and Learning, first released in 2011 following extensive province-wide consultation. This plan – now widely known as the $10aDay Child Care Plan – provided a comprehensive framework for a publicly funded, high-quality, and accessible system.

Over more than a decade, CCCABC and ECEBC have refined and advanced this plan through ongoing research, policy development, and sector engagement. The Plan has achieved broad public and sector support and directly influenced provincial policy, including the 2017 election commitments and the subsequent introduction of ChildCareBC in 2018.

Organizational structure and capacity

CCCABC operates with a small core team – approximately three full-time equivalent staff – supported by consultants, an engaged Board, and extensive partnerships. Its influence is amplified through:

• collaboration with sector organizations, including ECEBC, MNBC and BCACCS;
• partnerships with researchers and policy experts; and
• engagement with labour, community organizations, local governments, and advocacy networks.

This model enables CCCABC to exert significant policy influence despite limited internal capacity.

Core functions 

CCCABC’s core functions include:

• developing detailed policy frameworks and system design proposals;
• undertaking economic and sectoral research;
• advancing advocacy campaigns and public engagement; and
• convening sector stakeholders and facilitating dialogue.

Recent work has focused on identifying the limitations of British Columbia’s current expansion model – characterized as unplanned, grant-based, and market-driven – and advancing alternatives grounded in public planning and coordination.

Current policy direction: School district-led expansion model

A central element of CCCABC’s current policy work, developed in partnership with ECEBC, is the proposal to transition to a school district–led model of child care planning and expansion.

This model would replace the current proponent-driven approach with a coordinated system in which:

• school districts act as the primary local planning authorities;
• expansion is guided by needs-based, multi-year plans;
• capital and operating funding are aligned with these plans; and
• a mixed network of public, not-for-profit, Indigenous, and existing for-profit operators is coordinated at the local level.

The proposal is intended to align child care with other core public systems, such as K – Grade 12 education and health care, and to address key limitations of the current approach, including inequitable access, inefficient capital allocation, inconsistent facility quality, and the growth of for-profit provision. For further information see: Child Care Expansion in BC:  Implementation Roles and Responsibilities  

Advocacy and sector leadership

CCCABC plays a central role in sector-wide advocacy and public engagement. Recent activities include:

• a relaunch of the $10aDay campaign to renew pressure for full implementation;
• province-wide engagement, including with rural and northern communities;
• collaboration with Indigenous organizations and sector partners; and 
• facilitation of sector roundtables on funding and operational challenges.

The organization also contributes to economic analysis demonstrating the broader social and economic benefits of child care investment.

Role in system expansion

CCCABC’s role in expansion is indirect but foundational. Rather than delivering services, it shapes the policy frameworks, funding models, and governance structures that determine how expansion occurs.

Its work – in partnership with ECEBC via the $10aDay campaign – has been particularly influential in:

• advancing a transition away from the current market-based approach;
• highlighting inequities in access, fees, and funding;
• securing a provincial commitment to develop a province-wide educator wage grid;
• drawing attention to the risks associated with for-profit growth; and
• holding government accountable for progress toward stated system goals.

Key insight

CCCABC illustrates the critical role of sustained policy leadership and advocacy in system transformation. Its long-term partnership with ECEBC in developing and advancing the $10aDay plan demonstrates how sector-led policy development can shape government action over time. Its current work on school district-led planning reflects a continued focus on strengthening the governance and coordination required to achieve a universal, equitable child care system.

Child Care Division, Ministry of Education and Child Care

Current role: Funding, policy, and system development

Under CWELCC, the Child Care Division plays a central role as funder and system coordinator. It administers the core funding mechanisms that drive both affordability and expansion, including operating funding, fee reduction programs, the $10aDay initiative, and capital funding (although both expansion of $10aDay sites and new capital intakes are currently paused), and develops related policies.

Recent internal restructuring reflects an intended shift toward a more integrated system approach, including closer alignment with K – Grade 12 education, improved coordination between policy and licensing, and enhanced data-sharing. The province now maintains regular forecasting of space creation and has strengthened coordination mechanisms following earlier concerns about system alignment. 

Partnerships remain central to the province’s approach. School districts are increasingly seen as key partners for expansion on public land, while relationships with Indigenous organizations are foundational, supported by a tripartite framework and ongoing collaboration. Sector organizations also play an important intermediary role in supporting program development and delivery.

Emerging policy directions

Early CWELCC implementation was driven by ambitious growth targets and the need to move quickly, but this did not always result in strategically aligned expansion. There is now greater emphasis on aligning growth with community need and making more explicit decisions about who expands and where. In 2026, there is a pause on new capital funding and expansion of $10aDay spaces. This pause in new capital funding has removed the province’s ability to directly influence expansion, while unplanned expansion continues as operators who can access financing (typically for-profit operators) and open licensed facilities can still receive operating funding. 

The province is also working to address system complexity. Multiple funding streams, variable parent fees, and administrative burden have created challenges for both operators and families. Efforts are underway to simplify funding approaches and improve coherence, while still recognizing the diverse cost structures across different types of operators. 

Key challenges

The province has historically used capital funding as a limited planning tool, allowing it to influence where spaces are created and to prioritize not-for-profit delivery. However, in the absence of capital funding, expansion becomes more operator-driven, with operators able to open and access operating funding independently. This creates a dynamic in which both community-planned and profit-driven growth occur simultaneously. 

Despite significant progress, several challenges continue to shape the province’s role. Workforce shortages remain the most significant constraint on expansion, affecting both the pace of growth and the ability of programs to operate at full capacity. There are also ongoing tensions between planned and operator-driven expansion, and between affordability goals and the financial sustainability of operators.

The complexity of the funding and program environment continues to create challenges, and fiscal constraints mean that future expansion will require more targeted prioritization.

Conclusion

In British Columbia expansion of ELCC has been considerable, particularly in centre-based care. However, the pattern of growth reveals important tensions between policy intent and outcomes. Despite explicit commitments to prioritize public and not-for-profit delivery, a substantial share of new spaces has been created in the for-profit sector, particularly in full-day programs for younger children. This reflects the ongoing influence of market-driven expansion alongside publicly funded system-building efforts.

The case study findings highlight that public and not-for-profit expansion in British Columbia is occurring through a mix of approaches: provincial funding, isolated proponent-level planning, municipal and institutional integration, school district involvement, and community-based not-for-profit delivery. These approaches demonstrate important strengths, including the ability to leverage public land, integrate services, and deliver high-quality programs. At the same time, they remain constrained by broader system conditions.

Across all cases, workforce shortages emerge as the most significant barrier to both expansion and sustained operations. Capital costs, start-up funding gaps, and the complexity of the current funding system also limit the pace and direction of growth. In addition, the reliance on external systems –such as land development, institutional expansion, or partnership opportunities – means that growth is not always aligned with areas of greatest need.

A further challenge relates to the current approach to affordability under the CWELCC, particularly the coexistence of $10aDay spaces alongside programs operating with significantly higher fees, even with fee reductions. While this funding has improved affordability for many families, it has also introduced significant inequities within the system. Families with access to $10aDay spaces benefit from substantially lower and more predictable fees, while others – often in similar circumstances –continue to face higher, unpredictable costs, even with subsidies.

This dual system also creates operational and financial challenges for operators, particularly multi-site not-for-profit organizations with the capacity to expand. New centres are not eligible for $10aDay funding, meaning operators must often open programs under a higher-fee, fee-reduction model. For organizations that already operate $10aDay sites, this creates internal inconsistencies in revenue and fee structures across locations. In unionized environments in particular, where there is an expectation of equitable wages and working conditions across sites, these differences can make it difficult to maintain consistent compensation. At the same time, limits on parent fees constrain the ability to generate sufficient revenue, making new sites financially challenging or, in some cases, unsustainable.

As a result, the current funding structure may inadvertently act as a deterrent to expansion by experienced, multi-site not-for-profit operators: organizations that are otherwise well positioned to support system growth. Addressing these inconsistencies will be critical to ensuring both equity for families and the long-term viability of operators.

Indigenous-led models, including those led by BCACCS, Métis Nation BC, and AHSABC, highlight the importance of distinctions-based, community-driven approaches grounded in self-determination. These models demonstrate both the potential for culturally appropriate expansion and the need for greater alignment between Indigenous systems and provincial policy frameworks.

Overall, the British Columbia experience suggests that while significant progress has been made, the transition to a formally planned, publicly managed system remains incomplete. 

Achieving the province’s long-term goals will require the province to develop and implement:

• public planning of where and how spaces are developed; 
• sustained and targeted capital investment; 
• a comprehensive workforce strategy; and 
• greater alignment between capital and operating funding, policy, and service delivery models. 

Without these enabling conditions – including more consistent and equitable funding approaches – expansion is likely to remain uneven and partially driven by market forces, limiting the ability to achieve a fully equitable and sustainable system.

Policy recommendations

The findings from the British Columbia case study point to the need for a more coordinated, equitable, and sustainable approach to expansion. The following recommendations are intended to support the continued development of a publicly managed, not-for-profit-led ELCC system.

1. Ensure the Ministry of Education and Child Care has a clear mandate for provincially led, planned, and funded expansion and system coordination

Child care expansion in British Columbia is currently shaped by a mix of limited local public planning and external factors such as land development and partnership opportunities. More proactive and coordinated planning is needed to align growth with need.

Policy directions include:

• establishing regional or local planning mechanisms (through school districts);
• strengthening provincial oversight of where and how spaces are developed; 
• improving data systems to support needs-based planning and forecasting; and 
• aligning capital, operating, and workforce planning. 

More deliberate system planning would help ensure equitable distribution of spaces and more efficient use of public investment.

2. Establish a more consistent and equitable approach to affordability funding

The current coexistence of $10aDay spaces and higher-fee spaces supported through fee reductions creates inequities for families and operational challenges for operators. A more consistent low-capped fee funding model is needed to ensure that affordability is applied equitably across the system.

Priority actions include:

• establishing a clear and transparent pathway for new and existing programs to transition into $10 a day funding; 
• reducing reliance on parallel funding streams that create uneven parent fees; and 
• ensuring that affordability mechanisms are predictable and aligned with the actual cost of service delivery. 

A more unified approach would improve equity for families while reducing financial risk and complexity for operators.

3. Align funding structures to support multi-site not-for-profit expansion

Current funding approaches may inadvertently discourage expansion by experienced not-for-profit operators, particularly those operating across multiple sites. Differences in funding and fee structures between sites create challenges in maintaining consistent wages, especially in unionized environments.

Policy changes should:

• ensure that new centres can access funding models that support financial viability from the outset; 
• enable operators to maintain consistent compensation and operating models across sites; and 
• recognize and support the role of established not-for-profit organizations in system expansion. 

Supporting these operators is critical, as they have the scale, experience, and infrastructure needed to expand efficiently and sustainably.

4. Re-establish and strengthen capital planning and investment

The pause in capital funding has reduced the province’s ability to guide where and how expansion occurs. Sustained and targeted capital investment is essential to support planned growth.

Key priorities include:

• reinstating capital funding, with a focus on public ownership of funded facilities;
• prioritizing projects that address underserved communities and populations; 
• expanding the use of publicly owned land (e.g., schools, municipal sites, post-secondary institutions); and 
• supporting cost-effective approaches, including modular construction where appropriate. 

A stronger capital strategy will enable more intentional, needs-based expansion.

5. Develop a comprehensive workforce strategy

Workforce shortages remain the most significant constraint on expansion. Incremental measures have not been sufficient to address the scale of the challenge.

A comprehensive strategy should include:

• the development of a provincial wage grid linked to qualifications and experience; 
• improved access to benefits, pensions, and stable working conditions; 
• expanded education and training capacity, including community-based delivery models; 
• targeted strategies for rural, remote, and Indigenous communities; and 
• specific attention to workforce needs in school-age care. 

Addressing workforce issues is essential to ensuring that new and existing spaces can operate at full capacity.

6. Expand and support public and publicly affiliated delivery models

Public and publicly supported models – including school districts, municipalities, and post-secondary institutions – offer important opportunities for integrated and stable expansion.

To support these models:

• address policy and funding barriers that limit direct public provision; and
• strengthen partnerships with municipalities and post-secondary institutions. 

Expanding these models would support the development of a more publicly managed system over time.

7. Continue to support Indigenous-led, distinctions-based approaches

Indigenous-led ELCC models are central to system development in British Columbia and reflect the principles of self-determination and reconciliation.

Indigenous stakeholders consulted as part of the case study noted that policy actions should:

• ensure sustained and flexible funding aligned with distinctions-based frameworks; 
• address misalignment between licensing and Indigenous culture; 
• support workforce development within Indigenous communities; and 
• strengthen coordination between Indigenous and provincial systems while respecting jurisdiction. 

These approaches are essential to achieving equitable and culturally appropriate access.

Taken together, these recommendations highlight the need to move from a system that supports expansion in principle to one that actively enables it in practice through aligned funding, public planning, and sustained investment in workforce and infrastructure.

Acknowledgements

The ideas, views and opinions in this publication belong to the author(s). They may not reflect those of the Government of Canada.

Endnotes

1. Data sources: Special tabulations conducted by Statistics Canada, based on the Labour Force Survey, 2021 and 2024 Annual Average and Statistics Canada, Labour Force Surveys (2021 and 2024 annual), Table 14-10-0396-01 in  Early childhood education and care in Canada 2021  and Early Childhood Education and Care in Canada-2024-2025 ↩︎
2.  In 2022, the ECE-WE was increased to $4/hour, retroactive to September 2021 and further increased for most eligible employees to $6/hour in December 2023. To participate in the ECE-WE, the facility operator must be enrolled in the Child Care Operating Fund base funding or operate as a $10aDay ChildCareBC Centre. Public sector unionized workers are eligible for $4/hour.    ↩︎
3.  In 2011, the Coalition of Child Care Advocates of BC and the Early Childhood Educators of BC released the Community Plan for a Public System of Integrated Early Care and Learning, commonly referred to as the “$10 a day plan.” It proposed integrating child care under the Ministry of Education, creating networks of child care programs, increasing staff wages, not-for-profit governance, and universal access, with full-time fees capped at $10 a day. Since that time, there have been numerous materials developed and campaigns initiated related to the plan. Further details about the plan and related initiatives can be found here. ↩︎
4. Space statistics in Figures 1 – 5 come from the Child Care Resource and Research Unit’s Early Childhood Education and Care in Canada series ↩︎
5. See section 2.1 of the Canada-British Columbia Canada-Wide Early Learning and Child Care Agreement – 2021 to 2026 ↩︎
6. See Child Care Expansion Plan Update (2026) for details of UBC’s expansion plan to 2050  ↩︎

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