This policy paper is part of the plan for achieving universal literacy in New York State. It acknowledges accomplishments in creating a statewide network of public and private providers, in public financing, and in the public recognition of literacy's importance; it then examines what must be done to further meet literacy needs. The proposed solutions must address the following challenges: determining adult literacy needs; assigning priority to adult literacy programs and services; eliminating physical and programmatic barriers; and improving adult literacy instruction, curriculum, and assessment. The following recommendations are made: (1) adult literacy and lifelong learning programs should be part of the state's comprehensive educational system; (2) adult literacy needs should be determined; (3) learning opportunities for adult literacy students should be improved; (4) programs should be relevant and appropriate to adult learners; (5) resources and support should be provided to staff; (6) adult literacy teachers should earn pay equal to elementary-secondary teachers; (7) appropriate performance standards should be established; (8) effective assessment instruments and technical assistance should be supported; and (9) programs should provide learner-centered instruction and support systems and promote student leadership and program involvement. Also included are a 19-item bibliography and 4 appendices with information on: the planning committee; federal, state, and special literacy programs; literacy convention resolutions; and proposed legislative initiatives. (NLA)