It seems really simple.
If I stood on a street corner, handing out $20 bills - would I need to pass a big law in order to FORCE people to accept them from me? No, people are smart enough to realize that taking the $20, benefits them.
So if I offer ObamaCare, why is there a penalty for not participating? Why is it, that the friends of the Obama admin, are all pestering them for waivers from OC? That the waivers are seen as a benefit, tells you EVERYTHING you need to know about OC.