Reported are results of a study of the characteristics and problems of the blindness system in the United States. The term blindness system is defined to include the set of persons with severe visual handicaps; the set of agencies, groups, and institutions providing services or financial support to them; the research and training affecting provision of services; and the laws, policies, and programs under which services are provided. Following a summary of findings and proposed directions of change, evidence gathered is presented in four sections: the blindness system in the U.S., formulation and application of a general model for the blindness system, research and technology relating to rehabilitation of the severely visually handicapped, and blindness legislation. Appended are six papers discussing allocation of resources to the various constituencies of the blind population, rehabilitation issues, new sources for manpower in the field, the role of technology in relation to visual impairment, psychosocial problems of the blind, and the ophthalmologist's role in rehabilitation. (KW)