Development and implementation of the Federal 504 Handicapped Access Regulations of the Rehabilitation Act of 1973 and the relationship between the government and higher education institutions are considered. The legislative history and overview of the regulations, institutional responses to the regulations, problems experienced by institutions with the regulations, and compliance and enforcement are discussed. The regulations are designed to eliminate attitudinal, procedural, and physical barriers confronting handicapped individuals. Field trips and interviews were undertaken with eight institutions, representing the public and private sectors, large and small schools, and urban and rural areas. Information about characteristics of the eight institutions, which are not identified, are included. The cost of compliance, and particularly of structural modifications, was the dominant concern for most institutions. Problem areas for institutions included: technical aspects of the regulations, problems of administration, and problems that relate to providing access. Views of handicapped students, an overview of institutional benefits and burdens from the regulations, and a list of some problem solutions are included. Compliance oversight is through written complaints from either individuals or groups to the Office of Civil Rights. Appendices include questionnaires used in institutional and government interviews and compliance deadlines for the regulations. (SW)