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Different categories of services present different policy issues for financing health care. This conceptual paper suggests four categories: (1) public health services for the entire population; (2) basic health care to individuals, where anticipated costs are small and relatively homogeneous; (3) potentially catastrophically expensive services to individuals, where costs are skewed but not predictable; and (4) potentially catastrophically expensive services to individuals, where anticipated costs are both skewed and predictable. Using Canadian and Manitoba data to illustrate some implications of the distribution of health expenditures, we suggest policies suitable for one category of services may not necessarily work for others. The small proportion responsible for incurring high health expenditures are not attractive candidates for voluntary risk pools, particularly in competitive markets. [ABSTRACT FROM AUTHOR]