Study methodology consisted of interviews with CDC officials, examination of relevant documents, visits to grantees in four States as well as 16 counseling and testing sites funded by the grantees, a literature review, and meetings with AIDS advocacy groups. Staff shortages at the Center for Prevention Services and lack of sufficient program data have hampered technical assistance efforts and the evaluation of the performance of counseling and testing grantees. State officials report that lack of resources and staff reluctance to become involved with HIV-infected persons has slowed implementation of counseling and testing at drug abuse clinics. Since follow-up for clients not returning for test results and long-term counseling place time-consuming demands on staff resources, these operations are not generally performed by grantees. Implementation of CDC's partner notification recommendations varied in the health departments visited. There are no HIV-specific Federal antidiscrimination protections for persons seeking HIV counseling and testing. This circumstance, along with State variations in confidentiality laws, has apparently limited the effectiveness of HIV counseling and testing programs. 25-item bibliography.