
Copyright reform in the U.S. is an issue fraught with complications and frequently brought to a standstill by the desires of competing interest groups. Still, there are a few areas of the law where reform seems relatively simple, desirable, and advantageous for all involved. Near the top of this pile is the so-called “orphan works” problem.
An orphan work is a work whose owner cannot be found. Because damages for infringement can be spectacularly high, even for works whose owners cannot initially be located, few artists or educators will dare to use such works. Songwriters wishing to write variations on an early 20th century tune, families wishing to have their grandparents’ wedding photos copied professionally, and even filmmakers making documentaries about turn of the century American picture postcards are all confronted by the problem of orphan works. Perhaps the greatest threat is in the realm of film, where priceless early films are literally disintegrating because their owners cannot be found to grant copying rights.
The problem is relatively recent. Prior to 1976, copyright holders who wished to maintain their copyright for the full 56 year term had to apply to the Copyright Office for renewal after 28 years. Copyrighted materials whose owners were no longer interested in using or licensing the material could simply choose not to renew after the first 28 year term, allowing the work to return to the public domain. Passage of the 1976 Copyright Act and several subsequent amendments greatly expanded the scope of the orphan works problem. In particular, the 1976 Act made registration with the Copyright Office optional (thus complicating search efforts), while a 1992 amendment instituted “automatic renewal” and removed the requirement to file a renewal application with the office. Under current law, then, an author could have created a piece of art in 1950, died in 1960, and his work would still be under copyright for years to come – even if a potential user of the work was unable to find out who had created the art or who currently owned the rights.
To combat this problem, two bills (The Orphan Works Act of 2008 in the House and the Shawn Bentley Orphan Works Act of 2008 in the Senate) were recently proposed. The House proposal stalled, but the Senate proposal passed and was forwarded to the House for deliberation.
The bill is relatively simple: a user of copyrighted material who is unable to locate a work’s owner (after a good faith search) is permitted to use the work. They are, however, required to attach a special orphan works symbol. If an owner later emerges, the user must merely pay “reasonable compensation” rather than face litigation and full liability. The Copyright Office would also create and maintain a database of copyrighted works in order to aid in the search process.
The law is by no means perfect. The standard used to determine reasonable compensation (“the amount a willing buyer and a willing seller would have agreed to” just before infringing began) is fuzzy at best, and it is unclear exactly what constitutes an appropriate search for a copyright holder. If the requirements are too strict, such searches could be costly and time consuming, while if the requirements are lax copyrighted works might be unfairly characterized as orphaned. Many visual artists have also objected to the bill, saying that the text-based registries the Office currently uses will lead to too many photographs and designs being designated as orphan works.
Nonetheless, the Act is a relatively simple solution to a major problem, and it would undoubtedly put many creative works back into circulation while maintaining owners’ rights. New image recognition technology should allay the concerns of visual artists by making it simpler to track down the owner of the rights to a particular painting or photograph. Notwithstanding the alarmists writing about the dangers of the Orphan Works Act and insisting that it will strip artists of their ability to hold copyrights, the Act seems reasonable and well tailored to its purpose. Here’s to hoping that the bill will pass in this session of Congress.







