With an estimated 17-22 million animals used in laboratories annually in the United States, public interest in animal welfare has sparked an often emotional debate over such uses of animals. Concerns focus on balancing societal needs for continued progress in biomedical and behavioral research, for toxicity testing to safeguard the public, and for education in the life sciences with desires to replace, reduce, and refine the use of laboratory animals. In 1985, the United States Congress enacted three laws that dealt with laboratory animals, including amendments to the Animal Welfare Act. This assessment analyzes the scientific, regulatory, economic, legal, and ethical considerations involved in alternative technologies in biomedical and behavioral research, toxicity testing, and education. Included is a detailed examination of federal, state, and institutional regulation of animal use, and a review of recent developments in 10 other countries. The report illustrates a range of options for congressional action in seven areas of public policy regarding animals: using existing alternatives; developing new alternatives; disseminating research and testing information; restricting animal use; counting the numbers and kinds of animals used; establishing a uniform policy for animal use within federal agencies; and amending the Animal Welfare Act. (JN)