On jurisprudence grounds, no. States means states. Congress didn't anticipate that they couldn't force states to set up their own exchanges. It's not the job of the Executive or the Court to pick up the slack on Congress's lack of foresight and change the bills for them so that they actually work. It's the job of Congress to not pass sloppy legislation.
If that was Congress's intent all along, then why did literally no Congressman of any party ever speak up and say that that's how the law was intended? Why didn't any state government ever step up and say that's how they thought the law worked?
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