The handset maker verifies that the update works with their models and customizations, and they makes the new files available to the MNO (Mobile Network Operator). The MNO then decide if/when the OTA push happens.
I've been on T mobile for a year and my G1 is still running Android 1.6. I can't complain, because the phone is weak sauce and at least everything needed for turn by turn navigation is supported.