Any attempt at policy prescription in a volume such as this must deal with a basic dilemma. If, on the one hand, an editor tries to forge a consensus, he may be left with the lowest common denominator of what his diverse contributors can agree on. All too often, this effort leads to a watered-down prescription, largely inadequate for dealing with the problems faced. On the other hand, if he addresses the issues squarely, seeking what he believes to be the best policies for the particular dilemmas at hand, then he is likely to abandon consensus.