This is the first of several publications which bring together staff papers and resource materials relating to the National Guidelines for Health Planning called for by the National Health Planning and Resources Development Act of 1974. In preparing for the guidelines, the Public Health Service commissioned a number of analytical papers and studies--this monograph is a selection of those materials. It sets forth the historical and legislative background for goal setting and presents baseline information on health status, utilization, and expenditures in general and specific terms. The monograph is addressed to community leaders and professionals engaged in the development of health goals and standards for their own areas and states and to other providers and consumers of health services who are concerned with health issues. (MM)