Issues confronting state agencies in planning for lifelong learning are reviewed. In considering the providers of education, attention is directed to relationships within formal education structures, as well as relationships between higher education and business/industry, professional associations and labor unions, and community organizations. Three questions concerning access are addressed: the current participation of adults in adult education, barriers to participation, and extending educational opportunities to adults. In discussing quality assurance, attention is directed to programs and procedures that offer degrees or academic credit. Also of concern is the question of why state officials, particularly governors, are interested in the preparation of workers, the types of programs that are believed to aid the economy through education and training of adults, and approaches states can take to provide the private sector with a skilled work force. Five policy questions are also addressed: enhancing productivity, product life cycle theory, technology and job skills, dual labor markets, and education beyond skill training. A framework for considering state roles is also discussed. Information on New York State goals for adult learning services by the year 2000 is appended, along with a bibliography. (SW)