A year that began with great ambition for major expansions of health insurance in Sacramento and in other state capitals is ending with considerable uncertainty. The governors of California, Illinois and Pennsylvania proposed sweeping plans to restructure healthcare this year. But none will finish 2007 with bills passed and signed. In each state, the initiatives confronted entrenched opposition from insurance and other business lobbies that made it far more difficult to build a consensus for change than in the smaller New England states that acted in recent years.