Canada’s financial industry regulator is quietly laying the ground for the country’s banks, insurance companies and pension funds to vastly increase credit and investments targeted to the current economic crisis.
In recent policy statements and conference appearances, officials at the Office of the Superintendent of Financial Institutions (OSFI) have sketched the outlines of a plan to unlock hundreds of billions of dollars – perhaps even as high as $1 trillion from the banking industry alone – for this mammoth undertaking.
OSFI head Peter Routledge, who holds the title of superintendent of financial institutions, says Canada’s financial system is so well capitalized that additional loan volumes or equity investments would not threaten the stability of the industry. Banks, for example, could make nearly $1 trillion in additional loans and remain above minimum regulatory capital requirements, he said last week at a financial industry summit.
“I do believe Canada’s financial system is in a strong position to help the economy adapt to our new economic environment,” he said in a speech hosted by the Global Risk Institute on September 17. Additional loans of $1 trillion would have a substantial impact on the Canadian economy, which, as Routledge pointed out, has a value of about $3 trillion in terms of gross domestic product in 2024. “Canada’s banks have ample capacity to help fund the country’s adjustment to this new era.”
Life insurance companies, which have boosted their capital over the last six years, have “ample capital buffers that can similarly be leveraged for new investments in the Canadian economy,” Routledge said.
Freeing up capital from insurers
Routledge said the Canadian economy and its financial sector are facing a level of turmoil not seen since the end of the Cold War in 1991. “The current era is no less bracing than that time. From escalating geopolitical instability and cyber threats to climate change; from domestic shifts to technological innovation; the risks and opportunities facing Canadian financial institutions are complex and consequential,” he said. OSFI “will enable Canadian financial institutions to play a central role in reinforcing Canada’s economic strength in this era of great uncertainty.”
This is not a philanthropic pursuit. This is a business strategy so that we have long-term resiliency. When you’re thinking 25 to 50 years out, you need to think about what the future economy is going to look like, and whether your investments will be there.
– Laura Zizzo, founder, Manifest Climate
In an example of the reforms to come, in July OSFI changed its life insurance capital adequacy regulations, which are the rules mandating how much capital life insurance companies must maintain as a buffer against potential losses on money they invest from policyholders and other customers. Under the new rules, life insurance companies can reduce the amount of capital set aside on investments in public infrastructure projects. The capital charge on debt investments in such projects drops to 3% from 6% and to 30% from 40% on equity investments. The aim is to free up the industry’s capital to create an incentive to invest more in infrastructure.
The life insurance industry welcomes these changes “as something we’ve long advocated for,” Blair Stransky, vice president of the Canadian Life and Health Insurance Association, said in a statement. The new rules “will help unlock significant investments, or billions of dollars, and accelerate national infrastructure projects.” The association estimates that life insurance companies held $50 billion in infrastructure investment in 2024.
The insurance company changes are only one facet of OSFI’s regulatory overhaul. OSFI has rescinded 20 guidelines to streamline regulation and paused some new capital requirements on banks as part of the federal government’s recently announced red-tape review. In remarks at another industry event in early September, Routledge also suggested OSFI may incentivize banks to increase their lending to the defence sector in keeping with the federal government’s pledge to boost military spending. More details will be announced in October, Routledge said.
Climate infrastructure is not charity
The life insurance changes will help the industry adapt to the transition to a low-carbon economy if they use this opportunity to invest in sustainable infrastructure, says Laura Zizzo, founder and chief strategy officer with Manifest Climate. Examples of sustainable infrastructure include flood-protection facilities, carbon capture projects, smart grids and renewable energy. “This is not a philanthropic pursuit. This is a business strategy so that we have long-term resiliency,” she says. “When you’re thinking 25 to 50 years out, you need to think about what the future economy is going to look like, and whether your investments will be there.”
In a joint brief with Corporate Knights to OSFI in 2021, Manifest, which uses artificial intelligence models to advise companies on climate risk, argued that losses on infrastructure investments are lower than on many market investments and capital requirements could be safely lowered, a suggestion implemented with the July changes.
In addition to relaxing the capital adequacy rules, Zizzo says, it’s reassuring that OSFI is holding firm on climate disclosure requirements for financial institutions. By holding the line on climate disclosure, OSFI is bucking the anti-climate backlash by United States and Canadian securities regulators, which shelved similar requirements for corporate stock issuers earlier this year.
Some Canadian insurance companies are recognizing the value of investments in sustainable infrastructure. Great West Life is partnering with Power Sustainable, an arm of parent company Power Corp., investing about $1 billion in sustainable food and infrastructure and renewable energy.
Sun Life has invested $4.2 billion in renewable-energy investments, about one-quarter of the company’s total infrastructure investment of $17.2 billion, according to figures cited by CEO Kevin Strain at the company’s annual meeting in May.
The OSFI reforms come at a time when the Liberal government of Mark Carney is under pressure to make good on his campaign commitment to make Canada into a conventional and clean energy superpower. The prime minister’s office did not respond to a request for comment on the OSFI reforms. However, Carney has said the government’s major projects office will play a key role in securing finance for projects on the national fast-track list.
A recent BloombergNEF report revealed that Canada’s big banks seem to be onside with the conventional-energy part of Carney’s ambition, but not so much on the clean energy side. The report shows that Canada’s major banks provided about $200 billion in fossil fuel lending and other financing in 2024, compared with about $104 billion to low-carbon energy. However, globally, in the first six months of 2025, banks and other financial institutions appear to be turning away from fossil fuels and increasing financing to renewables.
The scale of investment still not known
For now, the financial industry is non-committal on how much and what kind of investment could be financed from the OSFI reforms.
“At this point, we don’t know fully what the impacts of the OSFI changes will be on the insurance sector, but we welcome these changes and are watching with interest to understand what opportunities may exist to invest in Canada,” Stransky said.
The Canadian Bankers Association didn’t comment specifically on the OSFI reforms but in a statement said that “we can unlock growth, boost productivity and build long-term prosperity” through improvements in internal trade, infrastructure investment, financial regulation and tax policy, support for innovation, and fighting financial crime.
As the federal government’s major projects strategy names more infrastructure projects for fast-track approval, pressure will grow on Canada’s financial institutions to get on board with financing deals. It remains to be seen what mix of traditional and sustainable infrastructure and commercial deals will be made as the capital taps are loosened.
Eugene Ellmen writes on sustainable business and finance. He is a former executive director of the Canadian Social Investment Organization (now the Responsible Investment Association).
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