That's one interpretation. Another is that it's just another battle in the conservatives' (small c, not just much of the same-named UK party) 40+-year war against mutual financial institutions, gradually ratcheting up how everything must conform to capitalist terms - and even then, it only achieves a "reduction in the risk exposure"! (quote from the Solvency II Directive) One day there will be another improbable event that effectively bankrupts the capitalist speculators and I expect there will be a load more "too big to fail" waffle as pseudo-nationalisation is again abused to make us all pay for them.