The early days of the Clinton Administration were very rough for several reasons. One had to do with the White House staff that for the most part came from political backgrounds instead of government backgrounds. So they were trying to govern for the first time ever together with not a lot of experience at least in the Federal Government to begin with. Outside of Vice President Al Gore, OMB Director Leon Panetta and a few others.
They also had several controversies that they were dealing with. Like Gays in the military, Blackhawk Down in Somalia, a refugee crisis in Haiti and a few others. Like struggling to get their own deficit reduction plan and broader Federal budget proposal through a Democratic Congress that had a large majority in the House and a clear, but not super majority in the Senate. Which made President Clinton look like he couldn’t govern at least early on.
But despite all the troubles that President Clinton had in 1993 and to a certain extent 1994 with the failure to reform health care the Clinton Administration and that Democratic Congress was very productive as far as the legislation they were able to pass. Like free trade with NAFTA and GAT, deficit reduction, gays in the military, the 1994 Crime Bill, Family and Medical Leave and a few other things. So they were very productive even early on even though they weren’t very popular.