Sen. Max Baucus (D-MT), who is arguably the prime author of the Affordable Care Act, is “very concerned” that implementation of it is not going well.

During a Senate Finance Committee hearing with Health and Human Services Secretary Kathleen Sebelius, Baucus repeatedly expressed concerns that the administration has completely failed to do proper outreach and that most of his constituents are still very confused about the law. Baucus said small businesses have “no idea what to do” and he sees a “huge train wreck coming down.”

It is possible that Baucus is simply concerned about the poor job the administration is doing. The HHS has been forced to delay major parts of the new law and polling shows most people don’t understand the law.

It is also possible that Baucus is trying to distance himself from the law before his difficult 2014 re-election bid. Supporters of the law assumed it would become more popular after it passed. It did not.

Some now assume it will become more popular once it is implemented, but if the law’s rollout goes poorly it is unlikely to see a increase in popularity during the first few years.