This is what the IRS website says and seems to explain the reason so many people are having this problem.
Under IRS General Instructions relating to Form 2210:
What's New.
Waiver of underpayment penalty due to tax reform. The December 22, 2017, enactment of Public Law 115-97, commonly referred to as the “Tax Cuts and Jobs Act”, “TCJA,” or “Tax Reform,” included a broad array of tax changes affecting millions of individual taxpayers. On February 28, 2018, the IRS released an updated Withholding Calculator at IRS.gov/W4app and a new version of Form W-4 to help individual taxpayers determine their appropriate amount of 2018 tax withholding. Despite the release of the updated Withholding Calculator and new Form W-4, some individual taxpayers may have been unable to accurately calculate the amount of their required estimated income tax payments for 2018 and would be liable for a penalty. Therefore, the IRS is providing relief to these taxpayers by waiving the estimated tax penalty in certain instances. To qualify for the waiver, the total of your withholding and estimated tax payments made on or before January 15, 2019, must be at least 85% of the tax shown on your 2018 return. See Waiver of Penalty below for more information on how to determine your eligibility for the waiver and how to request it.