[tag=TO] [tag=VB] [tag=CC] [lemma=articulate] [lemma=□]
[tag=TO] [tag=VB] [tag=CC] [lemma=articulate] [lemma=a]
[tag=TO] [tag=VB] [tag=CC] [lemma=articulate] [lemma=articulate]
Customs was unable to develop and articulate a plan , industry was bickering over automation priorities , and Congress halted appropriations for all new Customs automation programs .