Pretty sure that is because they want people to get licensed, so the ratio for unlicensed is low. That is why I got licensed, there is no way I could have made any sort of living only taking 2 daycare children on top of my own 2 daughters.
Saw in the news last year of an unlicensed Manitoba provider that had one or two other adults working with her in her home and she had like 12 kids. She got shut down because the only way you can do that is if you are licensed as a group home daycare.
But really, it is an involved processed to get licensed but once you have it then it isn't hard to maintain at all. It also makes it easier to fill your spots, parents like the idea of a home daycare being licensed.