If the exchange gets all the rejects, then the average bill will be higher for participants.  First problem, most employers will dump people.  the fine is cheaper.  Second problem, those exchanges do not exist today.  Third problem, being in a good pool lowers the average cost, being in a bad pool raises the average cost.

CBO has only estimated. they have no idea what the response will be from employers in a dwindling economy.  Option 1, cover all your employees and lose money.  Option 2, cover none of your employees and make money.  timing is everything and this is not the time to dump an unfunded entitlement on America.

Instead, change the tax code, fund the program, implement the program.

Don't waste your vote, vote Green or Independent in the next election.