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THE CONFERENCE ON FAIR USE FINAL REPORT TO THE COMMISSIONER ON THE CONCLUSION OF THE CONFERENCE ON FAIR USE NOVEMBER 1998 This Report is available on the U.S. Patent and Trademark Office website at: www.uspto.gov/web/offices/dcom/olia/confu/indexx.html. Single copies of this Final Report, as well as the previously published Interim Report (December 1996), and the Report on the Conclusion of the First Phase of the Conference on Fair Use (September 1997) may be obtained, free of charge, by sending or faxing a written request to: CONFU Report c/o Richard Maulsby, Director Office of Public Affairs U.S. Patent and Trademark Office Washington, DC 20231 fax: (703) 308-5258 Library of Congress Cataloging-in-Publication Data Lehman, Bruce A. The Conference on Fair Use : final report to the commissioner on the conculsion of the Conference on Fair Use / Bruce A. Lehman. p. cm. “September 1998” Includes bibliographical references. ISBN 0-9668180-2-4 (alk. paper) 1. Conference on Fair Use. 2. Fair use (Copyright) – United States. 3. Information superhighway – Law and legislation – United States. I. United States. Information Infrastructure Task Force. Working Group on Intellectual Property Rights. IT. Title.. KF3030.1.L44 1998 346.7304’82--dc21 98-49346 CIP THE CONFERENCE ON FAIR USE FINAL REPORT TO THE COMMISSIONER ON THE CONCLUSION OF THE CONFERENCE ON FAIR USE BRUCE A. LEHMAN ASSISTANT SECRETARY OF COMMERCE AND COMMISSIONER OF PATENTS AND TRADEMARKS AND CHAIR, WORKING GROUP ON INTELLECTUAL PROPERTY RIGHTS OF THE INFORMATION INFRASTRUCTURE TASK FORCE NOVEMBER 1998 i Table of Contents VOLUME ONE INTRODUCTION ......................................................................................................1 BACKGROUND.........................................................................................................3 I. THE CONFU PROCESS ......................................................................................6 II. STATUS OF THE PROPOSALS FOR GUIDELINES..................................10 A. DIGITAL IMAGES........................................................................................ 10 B. DISTANCE LEARNING ............................................................................... 12 C. EDUCATIONAL MULTIMEDIA................................................................ 14 D. ELECTRONIC RESERVE SYSTEMS........................................................ 15 E. INTERLIBRARY LOAN AND DOCUMENT DELIVERY ...................... 16 F. USE OF COMPUTER SOFTWARE IN LIBRARIES................................ 17 III. SUMMARY .......................................................................................................17 IV. CONCLUSION .................................................................................................18 APPENDIX A: CONFERENCE ON FAIR USE PARTICIPANTS..................19 APPENDIX B: WRITTEN STATEMENTS SUBMITTED TO CONFU ........21 APPENDIX C: SUMMARY OF INITIAL PROPOSED PRINCIPLES...........23 APPENDIX D: TOPIC AND ISSUE PAPER PRESENTERS...........................25 APPENDIX E: TOPIC GRID ...............................................................................27 APPENDIX F: PARTICIPANTS IN MEETING ON THE FAIR USE OF MUSIC MATERIALS IN A DIGITAL ENVIRONMENT ........................................................................29 ii APPENDIX G: UNIFORM PREAMBLE FOR ALL FAIR USE GUIDELINES..............................................................................31 APPENDIX H: PROPOSAL FOR EDUCATIONAL FAIR USE GUIDELINES FOR DIGITAL IMAGES .................................33 APPENDIX I: PROPOSAL FOR EDUCATIONAL FAIR USE GUIDELINES FOR DISTANCE LEARNING ........................43 APPENDIX J: PROPOSAL FOR FAIR USE GUIDELINES FOR EDUCATIONAL MULTIMEDIA.............................................49 APPENDIX K: STATEMENT ON USE OF COPYRIGHTED COMPUTER PROGRAMS (SOFTWARE) IN LIBRARIES -- SCENARIOS .....................................................61 VOLUME TWO A. COPYRIGHT AWARENESS PROJECTS COLLEGE ART ASSOCIATION AND THE NATIONAL INITIATIVE FOR A NETWORKED CULTURAL HERITAGE .......................................... 69 AMERICAN SOCIETY OF JOURNALIST AND AUTHORS, AND ASSOCIATION OF AMERICAN PUBLISHERS............................................ 73 AMERICAN ASSOCIATION OF MUSEUMS................................................. 77 CENTER FOR THE RESPONSIBLE USE OF INFORMATION TECHNOLOGIES OF THE UNIVERSITY OF OREGON COLLEGE OF EDUCATION CENTER FOR ADVANCED TECHNOLOGY IN EDUCATION........................................................................................................ 81 B. EDUCATIONAL LICENSING PROGRAMS THE ART MUSEUM IMAGE CONSORTIUM ............................................... 85 IMAGE DIRECTORY......................................................................................... 89 MUSEUM DIGITAL LICENSING COLLECTIVE......................................... 99 COPYRIGHT CLEARANCE CENTER.......................................................... 103 iii C. OTHER PROGRAMS SOFTWARE LICENSING................................................................................ 105 VOLUME THREE A. ANNOTATED SELECTED BIBLIOGRAPHY..........................................107 B. DIRECTORY OF PARTICIPANT ORGANIZATION INFORMATION .......................................................................................... 131 iv FINAL REPORT TO THE COMMISSIONER 1 VOLUME ONE INTRODUCTION In 1993, President Clinton formed the Information Infrastructure Task Force (IITF) to articulate and implement the Administration’s vision for the National Information Infrastructure (NII), and established the U.S. Advisory Council on the National Information Infrastructure within the Department of Commerce to advise the Secretary of Commerce on a national strategy for promoting the development of the NII.1 The IITF is chaired by the Secretary of Commerce and consists of high-level representatives of the Federal agencies that play a role in advancing the development and application of information technologies. Guided by the principles for government action described in NII Agenda for Action2 and GII Agenda for Cooperation,3 the participating agencies worked with the private sector, public interest groups, Congress, and State and local governments to develop comprehensive telecommunications and information policies and programs that will promote the development of the NII and best meet the needs of the country. The IITF is organized into three committees: the Telecommunications Policy Committee, the Committee on Applications and Technology, and the Information Policy Committee. The Working Group on Intellectual Property Rights (hereinafter “Working Group”), chaired by Assistant Secretary of Commerce and Commissioner of Patents and Trademarks Bruce A. Lehman, was established within the Information Policy Committee to examine the intellectual property implications of the NII and to make recommendations on any appropriate changes to U.S. intellectual property law and policy.4 Following a public hearing in November 1993,5 and review and analysis of both solicited written comments and extensive public comments submitted, the Working Group released a preliminary draft of its report (“Green Paper”) on July 7, 1994.6 Following release 1 See Exec. Order No. 12864, 3 C.F.R. 634 (1993). 2 Information Infrastructure Task Force, National Telecommunications and Information Administration, National Information Infrastructure: Agenda for Action (1993). 3 Information Infrastructure Task Force, Global Information Infrastructure: Agenda for Cooperation (1995). 4 For list of participating agencies, see Information Infrastructure Task Force, Working Group on Intellectual Property Rights, Intellectual Property and the National Information Infrastructure: The Report of the Working Group on Intellectual Property Rights (1995) (hereinafter “WHITE PAPER”) at App. 3. 5 See Request for Comments on Intellectual Property Issues Involved in the National Information Infrastructure Initiative, 58 Fed. Reg. 53,917 (1993). 6 See Information Infrastructure Task Force, Working Group on Intellectual Property Rights, Intellectual Property and the National Information Infrastructure: A Preliminary Draft of the Report of the Working Group on Intellectual Property Rights (1994) (hereinafter “GREEN PAPER”). 2 FINAL REPORT TO THE COMMISSIONER of the Green Paper, the Working Group heard testimony from the public in four days of hearings in Chicago, Los Angeles, and Washington, D.C., in September 1994.7 The Green Paper expressed significant concerns over the ability of the limitations on copyright owners’ exclusive rights, particularly those contained in the fair use provisions of the Copyright Act, to provide the public with adequate access to copyrighted works transmitted digitally.8 While recognizing that the principles underlying the guidelines for library and educational use of printed matter and music should still apply, the Working Group believed it would be “difficult and, perhaps, inappropriate, to apply the specific language of some of those guidelines in the context of digital works and on-line services.”9 The Working Group convened a Conference on Fair Use (CONFU) to bring together copyright owner and user interests to discuss fair use issues and, if appropriate and feasible, to develop guidelines for fair uses of copyrighted works by librarians and educators.10 At the time of the issuance of the Report of the Working Group on Intellectual Property Rights (hereinafter “White Paper”),11 in early September 1995,

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