Clinton rode into office on the promise of change. It was a safe, content- free slogan. After all, in recent years, the most radical proposals for change have come not from the Democrats but from the Republican right. Change could mean the further downsizing of government and neglect of social problems, or, of course, the reversal of these trends. When they went to the polls in 1992, however, most Americans had a good idea of what kind of change they wanted.