COMPARISONOFTHEUNITEDSTATESANDTHEUNITEDKINGDOM COPYRIGHTLAWSREGARDINGOWNERSHIPOFPRIMARYLAWMATERIALS By IRINAY.DMITRIEVA ADISSERTATIONPRESENTEDTOTHEGRADUATESCHOOL OFTHEUNIVERSITYOFFLORIDAINPARTIALFULFILLMENT OFTHEREQUIREMENTSFORTHEDEGREEOF DOCTOROFPHILOSOPHY UNIVERSITYOFFLORIDA 2003 Copyright2003 by IrinaY.Dmitrieva Formyparents,ElizavetaandYuriyDmitriev, formygrandmother,VeraKlennikova, andinthelovingmemoryofmygrandfather, AlexanderKlennikov. ACKNOWLEDGMENTS Thisdissertationwouldnothavebeenpossiblewithoutthehelpofthelibrarianson bothsidesoftheAtlantic.1wouldliketothankthepatientstaffoftheUniversityof Florida’sGovernmentDocumentscollection,especiallyPaigeHarper.Also,Iamgrateful fortheopportunitytohaveworkedinthefollowingU.K.collections;theBritishMuseum Library;thePublicRecordsOfficeattheNationalArchivesofEngland,Wales,andthe UnitedKingdom;theHouseofLordsReeordsOffice;andtheBodleianLawLibraryat theUniversityofOxford.IthankHerMajesty’sStationeryOfficeforsupplyingmewith therequestedmaterials. Myspecialthanksgotomyacademicadvisor.UniversityofFloridaProfessorBill Chamberlin,whowaswithmeeverystepoftheway,andtomyfamilyinMoscow, Russia,whoalwayssupportedme:mymother,ElizavetaDmitrieva,myfather,Yuriy Dmitriev,mygrandmother,VeraKlennikova,andmyuncle,VitaliyKlennikov. IV TABLEOFCONTENTS pagg ACKNOWLEDGMENTS ABSTRACT ^ CHAPTER 1 INTRODUCTION ^ ResearchQuestionsandMethodology ^ TheoreticalFramework ^ SignificanceOftheStudy ^ LiteratureReview ^^ ReviewofLiteratureonU.S.CopyrightProtectionofGovernmentMaterials 15 ReviewofLiteratureonU.K.CopyrightProtectionofGovernmentMaterials 20 2 COMMONLAWHISTORYOFTHECROWN’SEXCLUSIVERIGHTSINTHE TEXTOFLAWS 29 LegalBasisoftheCrown’sExclusiveRightsinOfficialLegalTexts 31 CommonLawontheCrown’sExclusiveRightsinOfficialLegalTexts 36 3 CROWNCOPYRIGHTINTHEPERIODOF1880s-1950s 41 MemorandumandtheTreasuryMinuteof1887 41 CopyrightPolicyUndertheTreasuryMinuteof1887 49 CopyrightActof1911 CopyrightPolicyUndertheTreasuryMinuteof1912 55 4 CROWNCOPYRIGHTINTHEPERIODOF1950S-1980s 69 TheCopyrightActof1956 CopyrightPolicyundertheCopyrightActof1956 83 Copyrights,DesignsandPatentsActof1988 89 CopyrightPolicyundertheCopyright,DesignsandPatentsAetof1988 101 5 CROWNandPARLIAMETARYCOPYRIGHTINTHE1990s 109 EventsandPoliciesThatShapedGovernment’sCopyrightRegimeinthe1990s 110 GovernmentInformationasaMarketableCommodity 110 V PrivatizationoftheHMSO ^ InitiativesonElectronicDistributionofGovernmentInformation 119 TonyBlair’sFreedomofInformationInitiative 123 CompliancewiththeEuropeanCommunityLaw 130 RevisionofCrownCopyrightPolicyintheLate1990s 135 TheGreenPaperonCrownCopyrightintheInformationAge 135 ResponsestotheGreenPaper 138 TheWhitePaperonTheFutureManagementofCrownCopyright 151 HMSOGuidanceNotes 1^^ 6 ONLINEAVAILABILITYOFGOVERNMENTMATERIALSINTHEUNITED KINGDOM 162 StatutesandBills 163 JudicialOpinions 166 PortalSitesandRegulatoryMaterials 168 Conclusion 120 7 COMMONLAWANDPUBLICPOLICYONCOPYRIGHTINPRIMARYLAW MATERIALSINTHE19™CENTURY 172 Overview 172 8 LEGISLATIVEHISTORYOFTHEBANONCOPYRIGHTINFEDERAL GOVERNMENTWORKS 181 ThePrintingLawof1895 182 TheCopyrightActof1909 1^7 TheCopyrightActof1976 205 PreliminaryDraftsoftheCopyrightOffice 209 1964CopyrightRevisionBill 217 1965CopyrightRevisionBills 221 ArgumentsoverDefinitionofaU.S.GovernmentWork 231 NTISAmendment 234 9 U.S.INFORMATIONPOLICYINTHE1980s-90sAND“COPYRIGHT-LIKE” CONTROLSEXERCISEDBYFEDERALAGENCIESOVERTHEIR INFORMATIONPRODUCTS 240 Overview 240 The1980s:GovernmentWorksasaCommodity 246 PaperworkReductionActof1980andOMB’sCircularA-130 246 OMB’sFeeGuidelines 251 The1990s:AttemptstoReformtheGovernmentPrintingSystem 256 RevisedCircularA-130 256 104*''Congress,U*Session:ProposalstoPrivatizetheGPO 258 104*''Congress,2"*'Session:TheProblemof“FugitiveDocuments” 262 VI GPO’sRoleWithintheGovernment:SeparationofPowersIssue 268 H.R.4280:ProposaltoDecentralizeGovernmentPrinting 270 105*Congress, Session:CongressionalHearings 272 105*Congress,2"*^Session:S.2288 276 10 STATEOWNERSHIPOFCOPYRIGHTSINPRIMARYLAWMATERIALS..284 LegalGroundsForCopyrightIntheStatePrimaryLawMaterials 284 StatutoryCompilationsandOtherLegislativeMaterials 288 StateCourtReports StateAdministrativeRules ONLINEAVAILABILITYOFFEDERALANDSTATEPRIMARYLAW 11 MATERIALS 311 FederalPrimaryLawOnline 311 OverviewOfFederalLawsandRegulationsRequiringOnlineAccessToPrimary LawMaterials 311 OnlineAvailabilityOfFederalStatutesandLegislativeMaterials 315 OnlineAvailabilityOfFederalJudicialOpinions 317 OnlineAvailabilityOfAdministrativeRegulationsandDecisions 324 StatePrimaryLawOnline:Statutes,AdministrativeRegulationsand CourtDecisions 326 12 ANALYSISOFFINDINGS 332 Sovereigns:TheKingvs.“WethePeople” 337 RoyalPrerogativeasanAttributeofAristocracyDenouncedbytheUnitedStates...338 StrongCommitmentofU.S.FoundingFatherstotheFreedomofPohticaland ReligiousThought 339 DifferentRolesPlayedBytheBritishMonarchyandtheUnitedStates’Government: Paternalismvs.NegativePowers 340 ApplicationofNetanel’sAnalyticalFrameworkToGovernmentDocuments 353 GovernmentsasRationalEconomicActors 367 LISTOFREFERENCES 378 GovernmentStatutesandReports 378 UnitedKingdom 378 UnitedStates 379 Federalstatutesandreports 379 Statestatutes 382 TableOfCases 383 UnitedKingdom 383 UnitedStates 383 BooksandArticles 384 vii ' '-fF. BIOGRAPHICALSKETCH 390 ,' .(di^\ 4'» >.•f"' . '• ' . # * .-t: nj. :V4 ''-.*t .‘V».'s' i- » -.»• ^ .r"^' ••xMi <«•>»/'>""A. *'.rVn y•!•«m'»t'i,s* .r jj - T•i-’'ii« s'’.1 '‘ --. vt '».;^?4 -- 'I •a ..V. '3 •t' -I ,-4^ .ii ‘y' . . 4• <»'•C‘^ t •.w>' f>V viii 9^>4 AbstractofDissertationPresentedtotheGraduateSchool oftheUniversityofFloridainPartialFulfillmentofthe RequirementsfortheDegreeofDoctorofPhilosophy COMPARISONOFTHEUNITEDSTATESANDTHEUNITEDKINGDOM COPYRIGHTLAWSREGARDINGOWNERSHIPOFPRIMARYLAWMATERIALS By IrinaY.Dmitrieva May2003 Chair: BillChamberlin MajorDepartment: JournalismandCommunications TheworkexploresthesimilaritiesanddifferencesineopyrightlawsoftheUnited StatesandtheUnitedKingdomregardingtheownershipofprimarylawmaterials, includingstatutes,judicialopinions,andadministrativeregulations.Byanalyzingthe commonlawandlegislativehistoriesofcopyrightstatutes,theworkexplainswhythe “blackletter”lawsofthetwocountriesarediametricallyoppositetoeachother-whilethe UnitedStatesbanseopyrightinfederalgovernmentworks,theUnitedKingdomseeures bothCrowncopyrightinthetextofitslawsandParliamentarycopyrightinanarrayof legislativematerials. Theworkalsoshowsthat,whiletheUnitedStatesandtheUnitedKingdomhave differentpoliciestowardcopyrightinggovernmentdocuments,officialsinbothcountries largelyhavethesameconcerns.Ingeneral,theywantwidespreaddistributionofnon- confidentialgovernmentinformationthathasadirectbearinguponreelectionprocess.At thesametime,governmentsinbothcoxmtriesseekwaystofundpublicationsthatarenot IX inlargepoliticalandeconomicdemand.Itisclearthatamajorreasonforthedifferent policies,however,isthedominanceoftheargumentintheUnitedStatesforreadyaccess toofficialinformationcomparedtoagreaterconcernintheUnitedKingdomforsecrecy, security,andaccuracy.Butbothcountriesusecopyrightasameansofcontroloverthe flowofgovernmentinformation. X