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MEXICO CITY – Two weeks after the first known swine flu death, Mexico still hasn't given medicine to the families of the dead. It hasn't determined where the outbreak began or how it spread. And while the government urges anyone who feels sick to go to hospitals, feverish people complain ambulance workers are scared to pick them up. A portrait is emerging of a slow and confused response by Mexico to the gathering swine flu epidemic. And that could mean the world is flying blind into a global health storm. Despite an annual budget of more than $5 billion, Mexico's health secretary said Monday that his agency hasn't had the resources to visit the families of the dead. That means doctors haven't begun treatment for the population most exposed to swine flu, and most apt to spread it.