are waivers that allow insurance plans to set annual coverage limits which are otherwise now illegal.
It's mostly large employers, and many unions, that have annual coverage limits to hold down the cost of the insurance plans. These waivers are good for a year at a time and will no longer be given as of 2014 when the exchanges go into effect.
This is the HHS page with the current waivers so you can see for yourself:
http://www.hhs.gov/ociio/regulations/approved_applications_for_waiver.htmlThis is the guidance on the waiver process:
http://www.hhs.gov/ociio/regulations/patient/ociio_2010-1_20100903_508.pdfThese waivers were provided for under the law because otherwise the law would result in people completely losing coverage. In fact, some places didn't bother with the waiver process and just closed out coverage entirely, or simply passed along most of the cost to the employees so a lot of them had to drop coverage entirely.
For 2011, the annual coverage limit cannot be less than 750K. As you can imagine, a plan that had a 50K or 150K annual limit can't absorb that cost. The reason you see a lot of small unions on that list is that membership is often older, so they adopted a lower annual limit to keep costs down. Most plans with 500K limits or 250K limits could adapt by increasing copayments and restricting other coverage.
As to why the waivers are given, I quote from the guidance:
In order to ensure that individuals with certain coverage, including coverage under limited benefit or mini-med plans, would not be denied access to needed services or experience more than a minimal impact on premiums, the interim final regulations contemplated a waiver process for plan or policy years beginning prior to January 1, 2014 for cases in which compliance with the restricted annual limit provisions of the interim final regulations “would result in a significant decrease in access to benefits” or “would significantly increase premiums.”