In order to provide a structured program for improved access to New York state libraries, legislation is being developed to establish nine regional library systems funded completely by the state and including public, school, and reference and research library resources systems. Each regional system will be governed by a Board of Directors, appointed by the Education Commissioner from nominees proposed by the regional library system. Component systems will retain their own governance structure. Per capita funding may not be appropriate because the regional systems do not work directly with library users. Local sponsor incentive aid may also be ineffective since local governments are often incapable of increased contributions, but this is believed essential by the Commissioner's Committee on Library Development in achieving total access, the main focus of the system's development. The committee feels that the federal government also has a responsibility to provide its share of incentive aid, and that total access to all types of libraries will eventually require 25 percent funding by the federal government of inter-type library systems. (Author/MBR)