In a nutshell, "efficient":
"A library is of value in every context of our lives (though it is often unfortunately not efficient enough to use in every context - technology though should in the future improve things here)" (citing myself from another document)
If the cost and expense of using the library exceeds the value of the end result, then the library sevice is not effecient enough to use and won't be used. This seems to be as far as I can make out the sense of the use of the term "efficient" in the 1964 Act, and reference to the term in the in second hearing of the Act (as outlined in the initial post to this thread) essentially I don't think it can be argued otherwise refers to the term in the same sense.
A footnote, I mentioned 'the institutions of society' (upthread post), citing off the top of my head, "health and social service, the economy and commerce, government, education, ... cultural heritage", I'd also add to that in retrospect law and order (perhaps the army would fall within this). Essentially, related roles and institutions (a sort of systems theory model of society). I was citing here from a very hazy memory of a diagram in a sociology book that I glanced at sometime in the 90s (though I think it was probably around at least the late 70s). The introduction consisted of the diagram of these institutions (maybe eight or ten or so of, just boxes on a page essentially with a few icons to illustrate), and the table of contents a chapter on each institution. If anyone has any clue as to which book I was looking at I'd really like to look back at it :)
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