It's the initial set-up, then the annual cost in addition, so it's been more costly than they assumed it would be.
You have to understand that the CPP as it exists right now is set up as a defined benefit plan. A supplement would be essentially a defined contribution plan. They run on different engines and require a different infrastructure that the government would have to build.
The second piece to consider is that whenever the government embarks on something sponsored by them, there is, rightly or wrongly, an implied guarantee or the expectation that the government will be there. Again, this is a defined contribution supplement and the government has to understand that Canadians, rightly or wrongly, will assume that the government will be there to cover their losses. It's something that you have to go into with your eyes open; that's not to say things can't be overcome, but there are just things to consider.