Starting the penalty small is so stupid. Whenever a system is new, you want to set expectations immediately. When a new highway opens, the police don't ignore it the first week. They flood the road with speed traps, so people know they have to follow the rules.
I'd agree with this as well.
Considering the many travails the ACA went through to get through congress by the skin of its ass (and losing the public option and 50 state medicare expansion along the way) was a higher penalty remotely feasable politically?