I'd be worried about how much they'd be charging for access once they had the monopoly on so many rare books.
It's the logic of cutting off one's nose to spite one's face, which prefers that no one benefit rather than Google see any benefit.
The copyright owner must make new copies of the work available; the price must be no greater than the original price (not inflation adjusted). And if they fail to do so, anyone may produce copies and escrow the original price (less the cost of production) for collection by the copyright holder.
That means that orphan works are effectively in the public domain. Calculus professors can ask students to get the cheaper 2nd edition, not the latest 22nd edition. And a company like Google could make scanned works available in their entirety for a small amount of money for each work. And the copyright holder still gets their end, without having to arrange a printing or hold stock.
What happens to limited editions of print runs? Can I not make a run of 200 prints anymore because the 201st will be something that someone could request?
Does a musician have to license any song they made to anyone who asks? Can they refuse to license a song to some organization they disagree with and not have it fall into the orphan works category?
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Amending copyright to the way you describe requires a renegotiation of the TRIPS agreement ( https://en.wikipedia.org/wiki/TRIPS_Agreement ) with all the nations of the WTO (or withdrawing from the WTO).
I suppose the rule could make reference to a rival good, i.e. the 22nd and 23rd editions of the calculus textbook. It should not be reasonable for the publisher to make the 22nd edition only available for $1,000, and the 23rd edition for $250. But that definition would invite many lawsuits and chilling litigation in general. A clear definition based on the historic price is much simpler.
You can still number your limited runs, and your limited runs still have increased numismatic value over some other reproduction.
I don't envision licensing of performance rights in this system, just recordings or reproductions.
Is this a reduction of the rights granted by copyright? Yes, intentionally so. It is stripping copyright holders of the right not to copy, against the interests of society in granting that copyright in the first place.
It keeps about 50% of the books submitted. The other half are donated
AIUI registration only allows for additional penalties during infringement claims.
It's a very serious issue, very well known to the people with the connections and power to affect it.
> [ it wouldn't ] make a ton of people vote for you to get re-elected
The tons of people are moved by the media, people are oblivious to the tricks of that trade, for the same reasons, obviously. In other words, this issue isn't something that happens to slip below the radar, it's kept stealthy by well organized engineering and considerable expense.
> and it won't create a ton of new jobs
Nothing ever creates tons of new jobs, the "tons" are reserved for promises and other useless noise.