Initially, the insurance program was described as a concept for formulating principles on which fees would be established. In most cases, when a Canadian receives a passport, there is no guarantee that he will turn to consular services for assistance.
So in some cases you're going to have a situation where Canadians will receive much more than the $25 value they pay in their consular fee; in some cases they won't receive anything, perhaps for the period they hold a passport. I think that fact is well recognized by Canadians.
When you look at the total program at any given time, as well as over the years, there are going to be times when we're in a slight surplus or slight deficit position. When we looked at the original costs we had calculated and disclosed to Parliament and saw original calculations showing increasing deficits, we didn't move initially to seek an increase in the fee under the User Fees Act because we wanted to see whether that was a trend or that was a momentary fluctuation in the costs.