You'll have to forgive me; that is more of, I suppose, a political issue than a legal one. Why they weren't able to come up with something, I don't know. I did see a lot of study papers that were prepared exploring different approaches to this, but in all cases there was still the constitutional question, the doubt as to whether Parliament could do anything outside of areas where it has exclusive jurisdiction.
For that reason I concluded that insolvency really was the only way this could be done in a manner that would satisfy the Americans and that would be constitutionally acceptable in a Canadian context.