Limited tax credits, the ability to renew plans that existed previously and employer misconceptions are among multiple reasons why initial enrollment in the Affordable Care Act’s Small Business Health Options Program was nearly 1.9 million below expectations, according to a report released Thursday by the Government Accountability Office.

In April 2014, the Congressional Budget Office estimated that 2 million people would enroll through both state- and federally-run SHOP exchanges. As of June 2014, the number was 76,000 for state-based SHOP. The Centers for Medicare and Medicaid Services has not released the federally-run numbers but expects them to be low as well.

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