Your example "to take account of the particular needs of different areas" is not a verb phrase. It is an infinitive phrase.
Student or Learner
I looked up the phrase and it is explained as regarding，about or according to. In every case it seems the phrase takes as its objects nouns，noun phrases ，or sentences.
Can a verb phrase be used with it？
...administrative arrangements have developed in such a way as to take account of the particular needs of different areas.
Your sentence fragment with 'as to' is fine, cubezero.
Hi Mike. Does this mean my question arose from a wrong analyse of the sentence？
Perhaps it should be read as ... such a way as ＋ to take into account of ...，as in ... have such a book as The History of English Speaking Peoples and the infinitive phrase here is one item that is listed after the such as structure.
In other words the part of sentence originally quoted is correct？
Thank you Mike.
May I further ask one question. I thought such as are used when there is more than one to list，as in He likes such fruits as apples，bananas and oranges.
Can it be used when there is one thing here？
Would it be strange to say I like such a book as The History of English Speaking Peoples？
I like such books as "The History of English Speaking Peoples."
Note that we put only one space after a comma and no space before a question mark.
Remember - if you don't use correct capitalisation, punctuation and spacing, anything you write will be incorrect.
Then I want to ask whether such a way as can be equally strange？ Shouldn't it be better to say such ways as， or it's a habitual usage？ I still find the fragment strange at this stage.