it is a combination of all of the above among many other things. opening free clinics only treats the symptoms not the disease. further, changing current legislature and whatnot can only help so much when the power often lies in the hospitals themselves (especially the private ones). this is a part of the joy of a healthcare system in a capatialist society.
personally i think the best start is to have a governmentally created drive funding preventative medicine for the poor. costs are low but the benefits are high. even this is a lofty aspiration as it does reek of a national health service (which many people will fight tooth and nail against), but that might just be the point. when the publc gets used to funding preventative medicine, then it is just a small step further to fund more and more. again though, this does go against many major tenants (tenents?) of US society...
if i had the solution, i wouldn't be premed