It is impossible for me to confirm what the policy was with regard to the fund prior to 2009. I can tell you that from the moment the new Employment Insurance Operating Account was created in 2009, from its inception the clear objective was to ensure that it would be balanced, and that its balance would be zero. Until now, the period was to be one year, but as of 2017, it was announced that there would be a seven-year period, following consultations where we were asked to provide a predictable and stable method.
On November 18th, 2013. See this statement in context.