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A chastened Clinton Administration, obviously aware that the next Congress is certain to be even less friendly than the current one, admitted that the 1995 version of health-care reform will resemble a fullback plunge and not this year's long bombs. Health and Human Services Secretary Donna Shalala told reporters a scaled-back approach was the only politically viable option, since voters "told us they were very gun-shy over taking on the whole system, every aspect of it. They would like it to be in stages and see what the implications are of each piece as we move along." A likely casualty: controversial employer mandates requiring the funding of many insurance expenses by small-business operators.