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From setting a national agenda on health care to making decisions in Congress.

President Clinton will forever receive credit (or blame) for focusing attention on the problems of health care access. Many were surprised that this surge of attention that accompanied his election brought no solutions in the 103d Congress. Setting a national agenda and making national decisions in Congress are very different matters. Agendas may be set by merely recognizing a problem, but decisions cannot be made until concrete solutions are defined. This is perhaps the most important difference between campaigning and governing.