NEWS ANALYSIS : Clinton Sees Chance to Win the Budget Battle : Politics: President hopes GOP proposals will cause a public backlash. That would pave way for a compromise.

Amid the din of battle over the federal budget, President Clinton summoned Democratic congressional leaders to the White House last week and gave them an unexpectedly upbeat message: With a little discipline and a little luck, they might win this fight yet.

“The Republicans are very disciplined and very good,” Clinton warned his war council around the Cabinet Room’s long mahogany table, according to people who were present. “But we’re making headway.”

Congress’ drive to cut the budget this spring was launched by triumphant GOP leaders, confident that they had a mandate from voters to slash government programs and shrink the federal budget deficit to zero.

But after three months of rhetorical battle, Clinton believes that he has begun to turn the Republicans’ issue around--into a major political opportunity for himself.

The budget battle is “the centerpiece” of Clinton’s work this year, said White House Chief of Staff Leon E. Panetta. “It will determine a lot about the priorities of the country; it will determine a lot about our economy in the future; it will determine a lot about the role of government.”

It will also determine a lot about how voters view Clinton as the election year of 1996 approaches. “It . . . will better define who the President of the United States is, and I think that’s helpful,” Panetta said in an interview.

Transforming budget-cutting from a liability into an asset would be a startling turnaround for a President whom Republicans succeeded in painting as a “tax-and-spend Democrat” only last year. But public opinion polls read raptly by White House aides suggest that the voters are moving Clinton’s way: An ABC News-Washington Post poll last week found that while respondents by a wide margin once trusted Congress over Clinton to deal with the deficit, the President has nearly closed the gap.

Clinton’s biting attacks on GOP plans to shrink Medicare, education and veterans programs have helped lift his approval rating in the poll to 51%, its highest level in a year.

White House strategists said they were not worried that the House Republicans passed their GOP budget plan last week, as was long expected. More important, they said, was that Clinton apparently succeeded with his threat to veto a GOP spending-cut bill, since the GOP leadership acknowledged that they probably wouldn’t have the votes to override a veto. It showed that the President can still make himself relevant.

Clinton is betting that House Speaker Newt Gingrich (R-Ga.) and other GOP leaders overestimated the public’s desire for cutting government--especially once the public realizes that the savings would come not only from unpopular programs, such as welfare and foreign aid, but also from middle-class benefits.

Political strategists note that Clinton’s argument may attract some swing voters--especially white women older than 35, one of the President’s critical demographic targets. Making up more than one-fourth of the electorate, they largely voted for Clinton in 1992, abandoned the Democrats in 1994--and could be key to his prospects in 1996.

At the same time, Clinton and his aides believe that they must eventually seek a budget compromise with the Republicans--if only to avoid the charge that the President has become irrelevant to the process of shrinking the government, a goal most voters still want.

“Preserver of the Big Government status quo is not a place you can end up in a fight this big,” one presidential adviser said.

So Clinton, Panetta and other aides have devised a two-part strategy to try to stop the GOP juggernaut and turn the budget battle to their advantage.

The first phase has been to shift the topic away from the deficit, force the public to confront the kind of cuts the Republicans want and paint the GOP as heartless vandals who would loot Medicare and student loans to give tax cuts to the wealthy.

“Less government? That’s not the issue. The issue is: Do you want your kids to go to college?” Labor Secretary Robert B. Reich said.

If that tactic works, and Republicans retreat from their proposed spending and tax cuts, then the Administration wants to sit down and try to negotiate a compromise, a budget “that might be nobody’s first choice but that is really quite a good budget,” said Alice Rivlin, director of the Office of Management and Budget.

But Clinton doesn’t want to begin those negotiations until “his leverage is at a peak,” Panetta said, meaning the President wants to continue whipping up public opposition to GOP budget cuts and threatening to veto a budget he doesn’t like, at least for a while.

“The Republicans are beginning the budget triage, amputations and decapitations, and for the moment the Democrats are happy to sit in the surgical theater and watch the blood flow,” said Ross K. Baker, an expert on Congress at Rutgers University.

Already, however, Panetta and other Administration officials have begun sending signals to Capitol Hill about the kind of deal Clinton might eventually want to make.

“Yes, we want additional deficit reduction,” Panetta said. “But in order to engage, the Republicans have to back off these huge tax cuts, they have to recognize that any Medicare or Medicaid savings have to be done in the context of [health care] reform, and they have to be willing to protect education as a key investment.” Almost everything else is “on the table,” he said.

One key concession the White House has quietly offered: Clinton is willing to drop most or all of his proposed $500-per-child tax credit--the core of his long-promised “middle-class tax cut”--if Congress agrees to make college tuition tax-deductible.

Those early signals suggest to some members of Congress, including some worried liberal Democrats, that Clinton may be willing to give up quite a lot--except for his major concerns on Medicare, Medicaid and education--for the chance to claim a victory.

When bargaining can begin in earnest depends mostly on the GOP’s tolerance for pain. Aides say Clinton will stay on the attack for at least three weeks as Republicans pass their budget resolutions and begin making decisions on the discretionary portion of the budget.

But White House officials hope that the solid Republican line will begin to fracture as members of Congress read the mood of their constituents. Some in Congress predict a turning point could come as early as the Memorial Day recess, which begins Saturday, but others warn that it might be September before negotiations start.

The White House strategy is not assured of success, of course. At least three problems loom:

First, Clinton has succeeded only partially in changing the focus of the debate from deficits to middle-class benefits. By a wide margin, the public still says it wants a balanced federal budget, with no deficit. The President’s dirty little secret is that he doesn’t think a balanced budget can be achieved in the foreseeable future at reasonable cost.

In fact, the public is inconsistent on these issues. Large majorities say they want to balance the budget, but equally large majorities say they are opposed to significant cuts in Medicare, Medicaid, student loans and other education programs.

Second, Democrats aren’t entirely unified behind Clinton’s strategy, which is why the President spent much of his meeting in the Cabinet Room last week appealing for more discipline.

Some strains were already evident in the closed-door session, participants said. House Minority Leader Richard A. Gephardt (D-Mo.) urged Clinton to give the Republicans no quarter, but Sen. John Kerry (D-Mass.) said: “It’s not enough to complain; we need to say where we go from here.”

Third, and most important, the Republicans may not cooperate. “Democrats have no standing to say anything about what we are doing in the House and the Senate,” House Budget Committee Chairman John R. Kasich (R-Ohio) said last week. Gingrich and Senate Majority Leader Bob Dole (R-Kan.) often disagree with each other, but they agree on one point: They don’t want Clinton to win credit for their hard work in fashioning a leaner federal budget. So they may be tempted to pass a budget bill of their own design and dare Clinton to veto it this fall.

That would lead to a messy confrontation that could require the federal government to halt routine operations until a solution is found.

“I don’t think anyone comes out a winner” in an impasse like that, Panetta said. “I don’t think the President wins; I don’t think Republicans or Democrats win.”