"[T]he Graham-Cassidy bill ... highlights a major political and policy flashpoint in the fight to repeal, replace, or repair the law: the degree to which states should be free to innovate and experiment by adopting non-standard health insurance product designs in their individual and small group markets. Under current law, there is little flexibility. Proposals abound to change this, but to do so invites consequences ... involving complex economic and actuarial issues and fundamental questions regarding the role of the federal government and the states in health care."