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But a Senate version of the bill is starting to take shape. The CBO analysis found that the draft bill would increase employer-sponsored coverage and extend health insurance coverage to 95 percent of Americans, Mr. Baucus said.

The bill also is expected to include the cooperative system instead of a straight public insurance plan and would not require employers to provide health insurance. The mandate, which is in the House draft of the health care bill, was dropped in the Finance Committee to account for employers who provide low-quality insurance.

Instead, the plan is expected to require employers to pay for the cost of their employees’ subsidy on the public plan, if the employee qualifies for a subsidy.

Mr. Baucus has led the group of six senators on the Finance Committee in search of a bipartisan compromise plan that would pass the full Senate. The group includes Mr. Conrad and Sen. Jeff Bingaman, New Mexico Democrat, as well as Republicans Sens. Charles E. Grassley of Iowa, Sen. Michael B. Enzi of Wyoming and Mrs. Snowe.