In any insurance type of program—CMHC has them, EI has one—there needs to be a buffer. If they're going to stand as independent accounts, they need to have some flexibility for times such as now, when claims may go higher than anticipated. This way, they'll be able to pay them out. The $2 billion is being established as a buffer, as would be normal practice.
On May 5th, 2009. See this statement in context.