We calculate the magnetic field above which vortices necessarily appear in a two-dimensional superconducting film in a non-uniform magnetic field applied near its center, as in two-coil measurements of superfluid density. Experiments suggest that free vortices appear when the Meissner screening current density is large enough that the free-energy barrier for separating tightly-bound vortex-antivortex (V-aV) pairs into free vortices is comparable to k B T , not at the much lower thermodynamic critical field. Specifically, we calculate the applied magnetic field above which there exists no metastable state without vortices. There is a simple analogy with the appearance of phase-slip-centers in a one-dimensional superconducting wire. 74.25.Op, 75.40.Mg