[Federal Register: December 7, 1994] ======================================================================= ----------------------------------------------------------------------- LIBRARY OF CONGRESS Copyright Office 37 CFR Parts 251, 252, 253, 257, and 259 [Docket No. RM 94-1A] Copyright Arbitration Royalty Panels AGENCY: Copyright Office, Library of Congress. ACTION: Final regulations. ----------------------------------------------------------------------- SUMMARY: The Copyright Office of the Library of Congress is adopting final regulations governing the conduct of royalty distribution and rate adjustment proceedings prescribed by the Copyright Royalty Tribunal Reform Act of 1993. EFFECTIVE DATE: These regulations are effective on January 6, 1995. FOR FURTHER INFORMATION CONTACT: William Roberts, Senior Attorney, Copyright Arbitration Royalty Panel, P.O. Box 70977, Southwest Station, Washington, DC 20024, (202) 707-8380. SUPPLEMENTARY INFORMATION: The Copyright Royalty Tribunal Reform Act of 1993, Pub. L 103-198, 107 Stat. 2304, eliminated the Copyright Royalty Tribunal (CRT) and replaced it with a system of ad hoc Copyright Arbitration Royalty Panels (CARPs) administered by the Librarian of Congress (Librarian) and the Copyright Office (Office). The CARPs adjust royalty rates and distribute royalties collected under the various compulsory licenses and statutory obligations of the Copyright Act. The CRT Reform Act, which was effective immediately upon enactment, directed the Librarian and the Office to adopt the rules and regulations of the CRT found in chapter 3 of 37 CFR, 17 U.S.C. 802(d), and provided that the CRT's regulations were to remain in effect until the Librarian adopts ``supplemental or superseding regulations.'' The Office adopted the CRT's rules and regulations on an interim basis on December 22, 1993, and notified the public that it intended to begin a rulemaking proceeding to revise and update those rules. 58 FR 67690 (1993). The Office began the rulemaking proceeding with publication of a Notice of Proposed Rulemaking (NPRM) on January 18, 1994. 59 FR 2550 (1994). The NPRM contained substantial revisions required by the dual structure of the royalty rate adjustment and distribution system created by the CRT Reform Act. Since the CRT's rules were designed for a single administrative body, the Office proposed extensive changes to accommodate the division of authority between the Librarian and the Copyright Office on the one hand, and the CARPs on the other. In addition to inviting written public comment, the Copyright Office invited interested parties to a public meeting to discuss the proposed regulations. More than 50 individuals attended the February 1, 1994, meeting. I. Interim Regulations After considering the concerns the parties expressed at the February public meeting, and thoroughly reviewing the written comments, the Copyright Office issued Interim Regulations on May 9, 1994. 59 FR 23964 (1994).\1\ The Interim Regulations substantially revised and updated the rules adopted in December of 1993. --------------------------------------------------------------------------- \1\The Copyright Office also published technical corrections to the Interim Regulations. 59 FR 33201 (1994). --------------------------------------------------------------------------- The need for immediate adoption of a regulatory framework was underscored by the imminence of a royalty distribution of money collected under the Audio Home Recording Act of 1992 for digital audio recording technology (DART). Section 1007(b), 17 U.S.C., requires determination of a DART controversy and commencement of arbitration proceedings on March 30 of each year for the prior year's royalty collections. The 1992 DART distribution proceeding was begun by the Copyright Royalty Tribunal but was suspended when the Tribunal was abolished, and therefore needed to be started anew. The 1993 DART distribution was begun by the Copyright Office under the new authority conferred by the CRT Reform Act, and on March 1, 1994, the Office published a notice in the Federal Register asking the claimants to the 1992 and 1993 DART royalties to comment as to the existence of any controversies in the royalty funds. 59 FR 9773 (1994). Anticipating a consolidated DART distribution proceeding for the 1992 and 1993 calendar years, the Copyright Office postponed the date for determination of DART controversies from March 30, 1994, to June 30, 1994, in order to permit adequate time for the adoption of regulations governing a CARP proceeding. On May 9, 1994, the Office adopted the Interim Regulations with the intention that they would govern any DART controversies and proceedings beginning June 30, 1994. The Office created a new subdivision of the regulations devoted entirely to the operation and procedures of the CARPs. We removed parts 301 through 311 of chapter III of 37 CFR and created subchapters A and B of chapter II. Subchapter A comprises the Copyright Office rules and procedures, consisting of parts 201-211, and remains unchanged. New subchapter B, created by the Interim Regulations, comprises parts 251- 259, and prescribes the rules and procedures of the CARPs. Part 251, the Copyright Arbitration Royalty Panel Rules of Procedure, consists of regulations governing the organization of the CARPs, access to CARP meetings and records, rules governing the conduct and course of proceedings, and procedures applicable to rate adjustments and distributions. Part 251 also includes extensive rules of conduct for arbitrators, as well as appropriate ethical and financial standards. We did not propose any specific rules of conduct in the NPRM, but did reserve a subpart for such rules and solicited comment from the interested parties on the issue. See 59 FR at 2554 (1994). Part 252 contains revised rules for the filing of claims to cable royalties, modeled after the system used by the CRT for the filing of DART royalty claims. Parts 253 to 256--Use of Certain Copyrighted Works in Connection With Noncommercial Educational Broadcasting; Adjustment of Royalty Rate for Coin-Operated Phonorecord Players; and Adjustment of Royalty Payable Under Compulsory License for Making and Distributing Phonorecords--is virtually identical to the former CRT's rules, with only some minor technical changes. Like part 252, part 257--Filing of Claims to Satellite Carrier Royalty Fees--is modeled after the royalty claim procedures used by the CRT for DART. Finally, parts 258 and 259-- Adjustment of Royalty Fee for Secondary Transmissions by Satellite Carriers and Filing of Claims to Digital Audio Recording Devices and Media Royalty Payments--contains only minor variations from the former CRT's rules. Since the CRT Reform Act eliminated the jukebox compulsory license and replaced it with a new provision for negotiated licenses (formerly section 116A of the Copyright Act, as amended by the CRT Reform Act), the Copyright Office dropped the regulations governing the filing of jukebox royalty claims (formerly 37 CFR part 305). In addition to soliciting general comments on the Interim Regulations, the Copyright Office also posed a number of questions to focus the commentators' attention on specific issues and to encourage the parties to offer their solutions. The questions ranged from whether certain types of DART proceedings were subject to CARP jurisdiction, 59 FR 23967 (1994), to asking for comment on ten hypothetical scenarios designed to test the parameters of the conduct rules. Id. at 23980. Written comments on the Interim Regulations were due June 15, 1994. Reply comments were due July 15, 1994.\2\ The Copyright Office received a total of 14 comments and replies. Many parties filed joint comments, and some of the joint commentators also filed separate comments. The commentator groups for comments and/or replies were as follows: --------------------------------------------------------------------------- \2\In addition, the Copyright Office met with representatives from ASCAP, BMI, the Canadian Claimants, the Devotional Claimants, the Joint Sports Claimants, NAB, NPR, PBS, and Program Suppliers on August 11th on matters pertaining to cable copyright royalty distribution. The minutes of that meeting are associated with the comment file and are available for public inspection and copying. Canadian Claimants (Canadian Claimants); Electronic Industries Association (EIA); James Cannings (Cannings); Joint Sports Claimants, the National Association of Broadcasters, Public Broadcasting Service, the Devotional Claimants, the Canadian Claimants, and National Public Radio (collectively Certain Copyright Owners); National Association of Broadcasters (NAB); National Music Publishers Association and the Harry Fox Agency (collectively ``Music Publishers''); Office of the Commissioner of Baseball (Baseball); Program Suppliers (Program Suppliers); Program Suppliers, Joint Sports Claimants, the National Association of Broadcasters, Public Broadcasting Service, American Society of Composers, Authors and Publishers, Broadcast Music, Inc., SESAC, Inc., the Devotional Claimants, the Canadian Claimants and National Public Radio (collectively Copyright Owners); Public Broadcasting Service and National Public Radio (collectively PBS/NPR); Recording Industry Association of America, Inc. (``RIAA''); Recording Industry Association of America, Inc. and the Alliance of Artists and Recording Companies, Inc. (RIAA/AARC). II. Suspension of DART Distribution As discussed above, the Office adopted the Interim Regulations to establish a regulatory framework in time for the start of DART distribution. The Office postponed the date for determination of controversies to the 1992/93 DART royalty pools from March 30, 1994, to June 30, 1994, to prepare for the possibility of convening a CARP for DART distribution. We published a request for comment on the existence of a controversy for the 1992/93 funds, adopted the Interim Regulations, established a procedural schedule for the filing of comments and motions leading up to a convocation of a CARP, and published the arbitrator list all before June 30. See 59 FR 9773 (1994) (Request for comments as to existence of controversy and consolidation of 1992 and 1993 funds); 59 FR 23964 (1994) (Interim Regulations); 59 FR 25506 (1994) (Schedule of procedural dates); 59 FR 24486 (1994) (Arbitrator list). In response to the Office's request for comments as to the existence of controversies, the Office received a motion, supported by a majority of the 1992/93 DART claimants, requesting that the 1992/93 DART royalty distribution be consolidated with the 1994 DART distribution. The movants argued that although they anticipated the existence of controversies, the amount of royalties in the 1992 and 1993 funds was insufficient to justify the cost of a CARP proceeding. They therefore requested that the Office suspend all procedural dates and defer all consideration of DART distributions until 1995. On July 13, 1994, the Librarian of Congress granted the claimants' motion for suspension of the 1992/1993 DART distribution proceeding and consolidation of that proceeding with the 1994 DART distribution. 59 FR 35762 (1994). The result of the Librarian's action is that the first DART distribution proceeding will begin no sooner than March 30, 1995. The Librarian also authorized distribution of the 1992 and 1993 Nonfeatured Musicians and Nonfeatured Vocalists DART subfunds--two subfunds not subject to CARP proceedings--and scheduled a public meeting for September 27, 1994, to discuss what would constitute the best evidence for distribution of the Sound Recordings Fund and the Musical Works Fund. Id. With the suspension of DART until 1995, the first proceeding conducted by a Copyright Arbitration Royalty Panel will likely be distribution of the 1990 and 1991 cable royalties. The claimant groups to 1990/1991 cable royalties have informed the Copyright Office that they wish to begin proceedings in accordance with final, not interim, regulations. The Office has already received written comments on the Interim Regulations; therefore, the Copyright Office is adopting Final Regulations that will govern all rate adjustments and distributions of royalties prescribed by the CRT Reform Act.\3\ --------------------------------------------------------------------------- \3\It is important to note that while today's Final Regulations replace the rules contained in the Interim Regulations, there are several policy determinations and decisions discussed in the preambles to the Interim Regulations and Notice of Proposed Rulemaking which remain in effect. For example, the Office will continue to consider proceedings pending before the CRT at the time of its elimination as null and void and without binding effect. See 59 FR at 23965-66 (1994). Parties practicing before the CARPs should therefore be familiar with the preambles to the Interim Regulations and the NPRM in this docket in conjunction with today's Final Regulations. --------------------------------------------------------------------------- III. Joint Claims Commentators had extensive comments about the interim rule governing the filing of joint royalty claims. Sections 252.3(4) and 257.3(4) require claimants filing a joint claim to cable and satellite carrier compulsory license royalties, respectively, to identify at least one secondary transmission containing a claimant's copyrighted works for each claimant listed in the joint claim. See 59 FR 23992, 23994 (1994). Performing rights societies were exempted from this requirement by Sec. 252.3(a)(4) and Sec. 257.3(a)(4). Because these sections generated much controversy, and because some of the commentators filed a motion requesting that the Office reconsider this part of the regulations, we find that the issue deserves reconsideration and resolution separate from the general discussion of amendment to the Interim Regulations. The former CRT's rules and regulations governing the filing of claims of the CRT, which we adopted on an interim basis in December 1993, are brief. Section 302.7(a) of the CRT's old rules simply permitted the filing of joint claims for cable royalties, but provided little else: For purposes of this clause claimants may file claims jointly or as a single claim. Such filing shall include such information as the Copyright Royalty Tribunal may require. A joint claim shall include a concise statement of the authorization for the filing of the joint claim. A performing rights society shall not be required to obtain from its members or affiliates separate authorizations, apart from their standard agreements, for purposes of this filing and fee distribution. 37 CFR 302.7(a) (1993). To the Copyright Office's knowledge, the Tribunal never adopted or prescribed any additional requirements for the filing of joint claims, nor was there any guidance on what information should be included in a claim. Section 309 of the Tribunal's rules, governing the filing of claims to satellite carrier royalties, was even more concise with respect to the requirements for filing joint claims, stating simply that ``[c]laimants may file jointly or as a single claim,'' and providing the same exemption for performing rights societies regarding authorizations. 37 CFR 309.2 (1993). Our NPRM proposed significant revisions to the Tribunal's rules regarding the filing of both cable and satellite carrier royalty claims. 59 FR 2556, 2557 (1994). The purpose of the proposed revision was to ``implement a procedural system similar to that adopted by the Tribunal for the filing of digital audio claims.'' Id. at 2556. Claimants were expressly authorized to file joint claims, and would be required to file ``a concise statement of the authorization for the filing of the joint claim.'' Id. at 2566 (cable), 2567 (satellite). Performing rights societies would continue to enjoy an exemption from obtaining separate authorizations from each of their members for filing a joint claim. For claimants initially filing an individual claim and later negotiating a joint claim with other claimants, the proposed rules required that either the joint or individual claimant notify the Copyright Office of the change within 14 days of making the agreement to enter into a joint claim. Id. Finally, the proposed rules required joint claimants to ``make available to the Copyright Office, other claimants, and, where applicable, a Copyright Arbitration Royalty Panel, a list of all individual claimants covered by the joint claim.'' Id. No mention was made as to whether each joint claimant was required to identify at least one secondary transmission of its works, beyond the general language of Secs. 253.3(a)(4) (cable) and 257.3(a)(4) (satellite) establishing the basis for a claim: ``A general statement of the nature of the claimant's copyrighted works and identification of at least one secondary transmission * * * establishing a basis for the claim.'' Id. The Office's proposed changes to the requirements for filing cable and satellite carrier royalty claims elicited little comment. Only PBS asked for clarification of the requirement for identifying a secondary transmission for a joint claim; it asked what it took to satisfy the requirement--a statement that merely identified at least one secondary transmission for at least one of the claimants included within the joint claim, or a statement identifying at least one secondary transmission for each claimant to the joint claim. See 59 FR 23979 (1994) (comments of PBS at 2). In discussing PBS' comment in the Interim Regulations, we acknowledged that the NPRM ``muddie[d] the waters'' for the filing of cable and satellite carrier claims, and the Interim Regulations deleted the proposed requirement for joint claimants providing a list identifying each claimant to the joint claim. Id. In so doing, we stated our belief that the former Tribunal's regulations required that a joint claim identify at least one secondary transmission for each joint claimant, and found support for such requirement in the Copyright Act: We are troubled, however, by changing what had been a longstanding requirement at the Tribunal for obliging all claimants to identify at least one secondary transmission of their copyrighted works. While such requirement does undoubtedly add to the time and expense burdens of joint claimants such as PBS, it is not without purpose. The law states plainly that cable compulsory license royalties are only to be distributed to ``copyright owners who claim that their works were the subject of secondary transmissions by cable systems during the relevant semiannual period.'' 17 U.S.C. 111(d)(3). To support such a claim, each claimant may reasonably be asked to identify at least one secondary transmission of his or her work, thus permitting the Copyright Office to screen the claims and dismiss any claimants who are clearly not eligible for royalty fees. The requirement will also help to reduce time spent by a CARP determining which claimants have a valid claim: if only one secondary transmission is identified for one of the joint claimants, then it could not readily be determined if the other claimants were even eligible for cable royalties. In an effort to end this confusion we are deleting subsection (e) with its requirement that joint claimants submit a list identifying all the claimants. Instead, we are amending subsection (a)(4) to require that each claimant to a joint claim, other than a joint claim filed by a performing rights society on behalf of its members or affiliates, must identify at least one secondary transmission of his or her works. 59 FR 23979 (1994). A number of commentators protested the Office's decision. PBS/NPR, the Office of the Commissioner of Baseball (Baseball), RIAA, NAB and Program Suppliers submitted comments devoted solely to the filing requirements for joint claims, with Program Suppliers asking that reconsideration of the joint claims interim regulations be severed from the instant proceeding for immediate disposition. See Program Suppliers, comments at 5. The commentators offered essentially four arguments against the Office's decision: (1) to require each joint claimant to identify a secondary transmission containing its work serves no valid purpose; (2) it creates undue expense; (3) the Copyright Office is erroneous in believing that the Copyright Royalty Tribunal required each joint claimant to identify a secondary transmission; and (4) it is unfair and inappropriate to afford performing rights societies an exemption and not others. First, PBS/NPR argued that ``no substantive purpose is served by the requirement for separate identifications of secondary transmissions as to each party included within the joint claim; this is simply a jurisdictional prerequisite that will not determine the distribution of royalties.'' PBS/NPR, comments at 2. Program Suppliers concurred with this view and criticized the Office's expressed concern that individual program information is needed to assist it and the CARPs to identify claims that should be dismissed: [T]he Office's suggestion that such information is needed so it could screen hundreds of yearly filings to determine eligibility, seems a particularly inefficient use of its resources. * * * Furthermore, it is unclear what action, if any, the Office could take regarding eligibility problems related to an individual claimant within a joint claim. Even if the Office finds that one claimant is ineligible to receive royalties, we would assume that the joint claim would still remain a valid claim. Whether and to what extent the share awarded to the joint claimants should be reduced by the ineligibility of one member of the group are questions for a panel based on the record evidence. Indeed, such questions are incapable of answers at the filing stage. Program Suppliers, comments at 3-4 (footnote omitted). Program Suppliers and Baseball recommended that the Office should refrain from any examination or ``screening'' of claims as a regular practice, and leave such activities and eligibility issues to the claimants to raise through motions either to the Librarian or the CARPs. Program Suppliers, comments at 4; Baseball, comments at 7. Second, RIAA asserted that the requirement for each joint claimant to identify a secondary transmission is unduly expensive and burdensome. Organizations like RIAA, that represent many claimants, would be forced to contact all of their members and track down a secondary transmission for each one. The problem is compounded by the time lag between most secondary transmissions and the time period for filings of claims. RIAA, comments at 2-3. PBS submits that it devotes roughly 300 hours annually to the task of identifying secondary transmissions for its member stations. PBS/NPR, comments at 2. These commentators submitted that elimination of the identification requirement for all joint claimants would dramatically reduce their expense and workload. Third, all of the commentators argued that the Copyright Office erred in believing that the Copyright Royalty Tribunal required each joint claimant to identify a secondary transmission. Apparently, while a reading of the CRT's rules indicated there may be such a requirement, see footnote 15, 59 FR 23979 (1994), in actual practice the Tribunal allowed joint claimants to submit only one secondary transmission of a copyrighted work belonging to one of the joint claimants as establishing a basis for a claim for all of the joint claimants. Baseball and RIAA submitted several examples of such filings. Baseball, comments at appendix; RIAA, comments at appendix. They asserted that the CRT interpreted its rules to apply the requirement of identification of at least one secondary transmission to apply equally to individual claims as well as joint claims, meaning that identification of a least one secondary transmission of one joint claimant was satisfactory to establish a basis for the entire joint claim. PBS/NPR, comments at 4-5. They therefore submitted that the Copyright Office erroneously interpreted CRT practice and should alter its regulations to conform with CRT precedent. PBS/NPR comments at 6; Program Suppliers, comments at 5; RIAA, comments at 6; Baseball, comments at 5; NAB, comments at 1. Finally, Baseball, PBS/NPR, and RIAA objected to the exemption granted performing rights societies from the Interim Regulations' requirement of identifying at least one secondary transmission for each joint claimant. Baseball stated that it ``is firmly of the view that it should not be treated less favorably than the performing rights societies,'' noting that the Interim Regulations gave no reason why performing rights societies should enjoy privileged status. Baseball, comments at 5. See also PBS/NPR, comments at 5. RIAA urged that, if the Copyright Office insists on continuing to require each joint claimant to identify a secondary transmission, it should broaden the definition of a performing rights society ``to include not only traditional performing rights societies, but also those joint claimants such as RIAA who, with respect to the royalties distributed to its members under sections 111 and 119, essentially perform the same functions of `performing rights societies.''' RIAA, comments at 6. In addition to seeking relief from Secs. 252.3(a)(4) and 257.3(a)(4), several commentators urged the Copyright Office to reconsider other requirements for the filing of cable and satellite carrier royalty claims. Baseball and the RIAA urged the Copyright Office to eliminate entirely the requirement of identifying a secondary transmission to establish a basis for a cable or satellite carrier royalty claim. Baseball, comments at 5-7; RIAA, comments at 3, 6. Baseball noted several instances where the CRT refused to dismiss a claim for failure to identify a secondary transmission, and suggested this demonstrates that ``the secondary transmission identification requirement did nothing more than unnecessarily increase the costs of claimants.'' Baseball, comments at 6. NAB, however, strongly opposed Baseball's recommendation, asserting that there is no compelling reason to change the requirement and that elimination of identification of a secondary transmission would be violative of section 111(d)(3) of the Copyright Act, which authorizes distribution of royalties only to copyright owners whose works were retransmitted on a distant signal. NAB, comments at 2-3. Baseball took the ``hands off'' approach one step further by urging the Copyright Office to refrain from making any substantive review of royalty claims. Baseball, comments at 6-7. See also NAB, comments at 2; Copyright Owners, reply comments at 9. Baseball argued that ``[r]outine Copyright Office review of all claims needlessly increases the costs of all copyright owners and does not serve any useful function,'' concluding that ``[d]isputes over a particular claimant's eligibility to royalties (when they arise) may be resolved internally within a Phase II class without involvement of the Copyright Office or a CARP.'' Baseball, comments at 7-8. Copyright Owners concurred, stating that ``[t]he parties themselves are in the best position to identify those claimants who are not entitled to royalties,'' and that they ``do not believe...that the Copyright Office's resources (and Copyright Owners' royalties) should be expended to screen each and every one of the thousands of claims that will be timely filed over the years.'' Copyright Owners, reply comments at 9-10. Copyright Owners do not object, however, to the Copyright Office returning claims that are not timely filed. Id. at 9. Given the pendency of receipt of cable and satellite carrier royalty claims and the request of Program Suppliers to sever the joint claims issue from this proceeding, the Copyright Office issued an Order addressing the filing requirements for joint claims for the 1993 cable and satellite carrier royalties. Order in Docket Nos. RM 94-1A; 94 CARP (93-CD); 94 CARP (93-SD)(July 13, 1994). The Office stated that while it would ``make a decision on the requirement for joint claims when we publish the final rules,'' it would waive the requirement of identification of a secondary transmission for each joint claimant in Sec. 252.3(a)(4) and Sec. 257.3(a)(4) for the July 1994 filing period. As a result of this action, anyone filing a joint claim for 1993 cable or satellite carrier royalties was only required to identify at least one secondary transmission to establish a basis for the entire joint claim. The Copyright Office has reviewed the comments of the parties regarding the identification of a secondary transmission requirement for joint claims and is amending Sec. 252.3(a)(4) and Sec. 257.3(a)(4) to require identification of at least one secondary transmission for each joint claim, as opposed to at least one for each joint claimant.<SUP>4 We have stated on several occasions that our intention in implementing the CRT Reform Act is to create a streamlined process that limits the cost of distribution and rate adjustment proceedings to the participating parties as much as possible. See e.g. 59 FR 23967 (1994). It is apparent from the unanimous opinion of the commentators that requiring identification of a secondary transmission for each joint claimant would add in some cases a substantial burden and cost to joint claimants without yielding an appreciable return in administrative efficiency. We are also aware that, in the past, the CRT did not require identification of a secondary transmission for each joint claimant.<SUP>5 The practice of the CRT was apparently an unwritten policy, and therefore of questionable precedential value, but it does demonstrate that the Tribunal did not experience any practical or administrative difficulties in allowing joint claimants to identify at least one secondary transmission for the entire joint claim. --------------------------------------------------------------------------- \4\In amending these sections, we are also eliminating the exemption for performing rights societies filing joint claims, since the amended rules will treat all joint claimants equally. \5\It would appear from the comments that while Baseball, after consultation with the Tribunal, would only include some examples of secondary transmissions in their joint claim, PBS would include an example for each one of the claimants represented in its joint claim. PBS/NPR, comments at 2. --------------------------------------------------------------------------- The amended rule, however, does require each joint claim to identify all claimants participating in the joint claim. Those who are not identified in the joint claim may not be added to it after the filing period. An exception, however, is made for the performing rights societies when they file cable and satellite carrier claims. If ASCAP, BMI and SESAC were to file a joint claim, those three organizations would have to be listed in the claim, but when ASCAP, BMI and SESAC file claims separately, they will not have to list their members or affiliates because of the burden of doing so, and the recognition that, together, they represent virtually every composer, lyricist, and publisher entitled to royalties.<SUP>6 A similar exception is not being made for the performing rights societies in the case of DART claims. There, it is not clear that the performing rights societies represent virtually the entire composer-lyricist-publisher universe, because they have an affirmative duty to obtain a separate written authorization to collect on behalf of their members and affiliates and it is unknown how many of them they represent, and because there are other organizations such as the Harry Fox Agency and the Songwriters Guild who file claims in that proceeding. --------------------------------------------------------------------------- \6\By this statement, we do not intend to prejudge controversies in the Music category. We know that there are composers, lyricists, and publishers, such as ACEMLA and Italian Book Corporation, who are unaffiliated with the three performing rights societies. However, to the extent that they file claims separate from the three performing rights societies, they become identified in the filing period as independent, leaving for future proceedings their proper share vis- a-vis the performing rights societies. --------------------------------------------------------------------------- While we are eliminating the requirement of identification of a secondary transmission for each joint claimant, we are not accepting RIAA and Baseball's recommendation of eliminating the secondary transmission identification requirement altogether. We agree with NAB that section 111(d)(3) of the Copyright Act authorizes distribution of cable royalties only to copyright owners whose works were retransmitted on a distant signal. Eliminating the requirement that the claim identify at least one instance of such qualifying retransmission would effectively eviscerate the claim requirement itself. See NAB, comments at 3. The argument has equal force for satellite carrier royalty claims. See 17 U.S.C. 119(b)(3). The Office also does not accept Baseball, NAB, and Copyright Owners' recommendation that the Office not review claims for eligibility and sufficiency. Section 801(c) expressly allows the Librarian, before a CARP is convened, to ``make any necessary procedural or evidentiary rulings that would apply to the proceedings conducted by such panel.'' We believe that this grant of authority is broad enough to allow the Copyright Office to examine royalty claims for timeliness and sufficiency. Furthermore, we do not accept Baseball and NAB's argument that review of claims is a waste of copyright owners' money. Eliminating claims which are untimely filed or patently deficient on their face promotes administrative efficiency by reducing the workload for the CARPs, which will already be pressed to conduct proceedings and issue a report within the 180-day time period. The Copyright Office will, therefore, continue to examine royalty claims for timeliness and sufficiency on their face. IV. Precontroversy Discovery Of all the issues generated by the CRT Reform Act and the transfer of royalty distributions and rate adjustments to the Librarian and the CARPs, precontroversy discovery has generated the greatest amount of comment and concern. The questions are general (Should there be any precontroversy discovery? Who should conduct it?), as well as specific (What discovery motions may be filed? When and how will discovery orders be issued?). We have examined this controversial issue extensively and considered all of the arguments. We are adopting as our final rule a solution that we hope will streamline the evidentiary process for the CARPs: a limited discovery period of 45 days conducted by the Librarian prior to declaration of a controversy requiring exchange of cases among the participating parties and one round of discovery motions and rulings. The question of whether or not to have precontroversy discovery, defined as a period for exchange of evidence among the parties to a distribution or rate adjustment proceeding prior to the Librarian's declaration of a controversy and convocation of a CARP, has come full circle during the course of this rulemaking proceeding. In reaction to a statement of Representative William Hughes, Chairman of the House Subcommittee on Intellectual Property and Judicial Administration of the House Committee on the Judiciary, accompanying the passage of the CRT Reform Act and commenting favorably on the use of precontroversy discovery and exchange of information, see 139 Cong. Rec. H10973 (daily ed. Nov. 22, 1993), the Copyright Office proposed a precontroversy discovery period in the NPRM. In the case of distributions, we proposed that the Librarian would declare a 90-day period for discovery and exchange of documents sometime after the filing of royalty claims for the distribution and ending with the declaration of the controversy. 59 FR 2550 (Jan. 18, 1994). Similarly, the Librarian would declare a 90- day period for rate adjustment proceedings corresponding with the time period set aside for consideration of rate adjustment petitions. Any party to a proceeding could file motions related to discovery with the Librarian during these time periods, as well as ``objections to royalty claims or petitions, or motions for procedural or evidentiary rulings.'' Id. All parties were to be given 14 days in which to respond to a motion or objection, and the Librarian could not declare a controversy in a proceeding until he had ruled on all motions. Id. In addition to the proposed precontroversy discovery procedures, the Office asked for comment on several matters: We particularly seek comments on the scope of such precontroversy discovery: whether it should include interrogatories of witnesses as well as production of supporting documents, and whether it would advance Chairman Hughes' goal of reducing costs by being able to stipulate facts and remove issues, or whether the additional procedures might add costs to the proceeding. Id. The commentators did not approve of the NPRM's precontroversy discovery proposal. In fact, the commentators urged the Librarian and the Copyright Office to refrain completely from conducting any precontroversy discovery, and proposed a unique solution whereby the CARPs could be convened for conducting such discovery prior to the beginning of the 180-day arbitration period. See 59 FR 23964, 23976 (1994). Under the proposal offered by Copyright Owners, a distinction would be made between ``the commencement of proceedings'' in 17 U.S.C. 803(d) and the ``notice initiating an arbitration proceeding'' described in 17 U.S.C. 802(b) and (e). The Copyright Office would first declare the ``commencement of proceedings'' and then immediately require the filing of written direct cases and empanel the CARP; discovery motions and objections would be ruled on by the CARP. After discovery was completed, the Office would ``initiate an arbitration proceeding,'' and at that point the statutory 180-day arbitration period would begin to run. 59 FR 23977 (1994) (comments of Copyright Owners at 9-12). We considered the statutory basis for Copyright Owners' proposal and concluded with respect to the Interim Regulations that it was without support: [A]s a matter of statutory construction, the Office cannot agree that the ``commencement of proceedings'' can be conceptually separated from ``initiating an arbitration proceeding'' so as to permit the CARP to sit earlier than the 180-day arbitration period. Section 802(b) (of the Copyright Act), which first uses the phrase ``initiating an arbitration proceeding,'' employs it in the context of ``a notice in the Federal Register initiating an arbitration proceeding under section 803 * * *'' In Sec. 803, the notice to which Sec. 802(b) refers is the ``notice of commencement of proceedings.'' Therefore, the phrases refer to each other and must be considered synonymous. (parenthetical added). 59 FR 23977 (1994). We acknowledged that Chairman Hughes recommended that our regulations provide for precontroversy discovery ``to the extent practicable,'' but concluded that ``there is no way to accomplish this goal under the statutory scheme.'' Id. The result was that the Interim Regulations contained no rules for precontroversy discovery or exchange of documents. Copyright Owners have changed their approach\7\ and now seek restoration of a precontroversy discovery procedure similar to the one proposed by the Office in the NPRM. The Copyright Owners' proposal has three principal facets: (1) mandatory exchange of direct cases among all parties to a proceeding prior to commencement of arbitration; (2) formal scheduling of a precontroversy discovery period by the Librarian; and (3) submission of and ruling on direct case discovery motions and objections by the Librarian, including motions, objections, and petitions contemplated in Secs. 251.4, 251.41(b) and 251.45(a) of the Interim Regulations. --------------------------------------------------------------------------- \7\Copyright Owners ask the Copyright Office to reconsider their proposal of convening CARPs prior to commencement of the 180-day arbitration period, suggesting that the Office could consider that the phrases ``notice initiating an arbitration proceeding'' and ``notice of commencement of proceedings'' have different meanings and therefore could constitute two separate events. For the reasons described in the Interim Regulations, however, the Office is adhering to its position that CARPs may not be convened prior to the commencement of the 180-day arbitration period. See 59 FR 23977 (1994). --------------------------------------------------------------------------- Copyright Owners argue that in order for precontroversy discovery to be in any way productive, the Copyright Office rules must be amended to require the parties to a proceeding to exchange their direct cases prior to the commencement of arbitration, as opposed to after a CARP has been convened. Copyright Owners, comments at 3-5, 7-10. They assert that without an exchange of direct cases, precontroversy discovery would become a fishing expedition as the parties attempt to guess at each other's theory of the case and principal evidence. Exchange of direct cases would allow the parties to focus on the evidence that will be presented at a hearing and reduce the amount of time the CARPs will need to devote to discovery matters. Id. at 3-4. In order to streamline the process and promote efficiency, the Copyright Owners suggest that the Librarian coordinate and schedule the precontroversy discovery process. Under the Copyright Owners' plan for distribution proceedings, the Librarian would first publish a notice seeking comment as to the existence of a controversy.\8\ Id. at 8. The notice would specify a filing date for comments, request that interested parties file their notice of intent to participate in the proceeding with their comments, and ask the participating parties for their comments on scheduling issues. Id. After receipt of the comments and participation notices, the Librarian would evaluate the existence of controversies, and then issue a scheduling order that would provide: \8\Copyright Owners propose a similar plan for rate adjustment --------------------------------------------------------------------------- proceedings. Copyright Owners, reply comments at 7 n.5. 1. dates for the filing of: (a) motions and objections contemplated by Sec. 251.45(a) of the Interim Regulations; (b) petitions to dispense with formal hearings under Sec. 251.41 (b); and (c) objections to arbitrators under Sec. 251.4; 2. a date for the filing of direct cases by parties; 3. dates for discovery by the parties and for filing of discovery and evidentiary motions; 4. a date by which the Librarian will rule on discovery and evidentiary motions; and 5. a future date certain on which each identified controversy will be declared and the initiation of an arbitration proceeding will be published. Id. at 9. Copyright Owners recommend that ``scheduling should be done on a case-by-case basis reflecting the comments from the parties; the rules themselves should not contain particular time periods for filing deadlines.'' Id. Copyright Owners argue that statutory authority for the above- recommended procedures can be found in section 801(c) of the Copyright Act, which permits the Librarian ``before a Copyright Arbitration Royalty Panel is convened, [to] make any necessary procedural or evidentiary rulings that would apply to the proceedings conducted by such panel.'' Id. at 10. This provision, they argue, coupled with Chairman Hughes' expressed desire for precontroversy discovery, indicates the legislative intent to have a formal and organized precontroversy discovery period. Aside from satisfying legislative intent, Copyright Owners submit that their proposed plan offers advantages. Setting a date certain for declaration of controversies and commencement of arbitration in the scheduling order will give potential arbitrators sufficient advance notice to plan their schedules, thereby increasing the likelihood of their being able to serve. Id. at 11. Also, having the Librarian rule on prehearing discovery and other motions allows the parties to prepare their cases properly and permits the full 180-day period to be devoted to hearing, briefing, and decision on the merits. Id. at 12. We have carefully considered the views of the Copyright Owners with respect to precontroversy discovery, especially in light of their request that the CARPs conduct precontroversy discovery and our earlier proposal set forth in the NPRM. For reasons stated in the Interim Regulations, see 59 FR 23977, we do not believe that it is statutorily permissible to convene a CARP prior to the beginning of the 180-day arbitration period for the purposes of conducting precontroversy discovery. We reaffirm our decision that the CARPs cannot conduct or permit discovery prior to the beginning of the 180-day arbitration period. After considering the proposal of the Copyright Owners, however, we do think that it is appropriate that the Librarian of Congress and the Copyright Office conduct some precontroversy discovery. We are therefore adopting a precontroversy discovery procedure similar to that now being endorsed by the Copyright Owners and initially proposed in the NPRM. We therefore amend Sec. 251.45 of the rules to provide a procedure for conducting precontroversy discovery. New paragraph (b) directs the Librarian to designate a 45-day period for the conduct of precontroversy discovery. The Librarian shall designate the dates for the 45-day precontroversy discovery period on a case-by-case basis after receiving and reviewing comments on the existence of controversies and notices of intention to participate described in Sec. 251.45(a). During this time period, the parties will exchange their written direct cases and the Librarian will entertain motions and objections regarding discovery matters, motions and objections to dismiss any party's royalty claim, motions for declaratory rulings or for procedural or evidentiary rulings, petitions to dispense with formal hearings under Sec. 251.41(b), and objections to arbitrators under Sec. 251.4. As stated in the Interim Regulations, ``[w]e agree with the Copyright Owners that precontroversy discovery before the filing of written direct cases would not be productive.'' 59 FR 23977 (1994). The 45-day precontroversy discovery period therefore shall begin with an exchange of written direct cases among the parties to the proceeding. Each party must serve one complete copy of their written direct case on each of the parties to the proceeding no later than the first day of the 45-day period. At any time during the 45-day period, the parties may file their motions and objections with the Librarian. Objections to any and all motions will be due seven days after the filing date for motions. The 45-day designated period shall be the sole time for filing precontroversy motions and objections. Any motions and objections received prior to, or after, the 45-day period will be returned. The Librarian will rule on motions and objections after the 45-day period has ended and prior to the declaration of the existence of a controversy. However, motions for production of documents or to compel production of evidence should be ruled upon by the Librarian within five days of receipt of the motion so as to expedite the discovery process. In addition to the exchange of direct cases and the filing of motions and objections, the Librarian will set the date on which controversies will be declared. We agree with Copyright Owners that fixing a date certain for declaration of controversies and initiation of arbitration proceedings will allow potential arbitrators and participating parties to clear their schedules, as well as afford the participating parties more time to prepare their cases. The precontroversy discovery period for rate adjustment proceedings is similar to that for distributions. After receiving a petition for rate adjustment, the Librarian will issue a request for public comment or conduct public hearings to determine whether the petitioner's interest is significant,<SUP>9 and require interested parties to file a notice of intention to participate. After reviewing comments or the hearing record as to the petitioner's significant interest and receiving notices of intention to participate, and after the period described in Sec. 251.63(a), the Librarian will issue a precontroversy discovery scheduling order identical to that for distribution proceedings. The Librarian will require exchange of direct cases, conduct the one round of motions and objections, issue appropriate rulings, and announce the date on which initiation of arbitration proceedings will begin. --------------------------------------------------------------------------- \9\The determination of ``significant'' interest is not required for the noncommercial educational broadcasting and satellite carrier rate adjustments since they begin automatically as provided in sections 118 and 119 of the Copyright Act. The Librarian shall, therefore, schedule precontroversy discovery in advance of the pre- set starting dates for those proceedings. --------------------------------------------------------------------------- We believe that these precontroversy discovery and scheduling regulations should provide a workable solution to the time pressures of distribution and rate adjustment proceedings, and should sharpen the focus of the proceedings by eliminating much of the preliminary work that would be faced by the CARPs without such procedures. We agree with the Copyright Owners that 17 U.S.C. 801(c), coupled with Chairman Hughes' floor statement regarding precontroversy discovery, provides ample statutory authority for the Librarian and the Copyright Office to conduct precontroversy discovery and issue rulings. It may be that, with some issues, the Librarian will designate the issue raised during the 45-day precontroversy discovery period to the appropriate CARP for disposition, but it is our belief that the Librarian will be able to dispose of most precontroversy discovery issues. V. Status of Certain DART Proceedings The Copyright Office concluded in the Interim Regulations that two categories of digital audio proceedings set forth in chapter 10 of the Copyright Act were not CARP proceedings and therefore not subject to these rules: (i) the proceeding raising the maximum rate for digital audio tape royalties which, under 17 U.S.C. 1004(a)(3), is to be handled solely by the Librarian; (ii) the arbitration proceeding under 17 U.S.C. 1010 to determine if a digital audio recording or interface device is subject to royalty payments. 59 FR 23967 (1994). RIAA/AARC agrees with the Office that proceedings under section 1004(a)(3) to raise the royalty maximum should be ``handled solely by the Librarian.'' RIAA/AARC, comments at 2. RIAA/AARC is concerned, however, with the costs involved in adjusting the royalty maximum and urges the Copyright Office to apply to DART its policy for CARP rate adjustments; that is, requiring that the burden of costs be shared equally by both copyright owners and users participating in an adjustment proceeding. Id. at 3 (59 FR 23977). RIAA/AARC does not agree that arbitration proceedings under section 1010 should be treated separately and states that ``the CARP system should be applied in these proceedings.'' Id. RIAA/AARC, however, offers no support for its position. EIA supports the Copyright Office position for both section 1004(a)(3) royalty maximum adjustment and section 1010 arbitration. EIA notes that section 801 of the Copyright Act contains no reference to royalty maximum adjustments or section 1010 arbitration, and that the Copyright Office correctly observed that the former Copyright Royalty Tribunal's duty to ``carry out its other responsibilities under chapter 10'' was expressly repealed from section 801 in the CRT Reform Act. EIA, comments at 2. Absent jurisdictional authorization, EIA argues that section 1010 is outside the scope of the CARPs. Furthermore, EIA notes that CARP procedures are inconsistent with section 1010 arbitration; a petition initiates CARP rate adjustments whereas agreement of the parties is necessary to initiate section 1010 arbitration. Id. at 3 (citing section 1010(a) and (b)). Section 1010 arbitration is also governed ``by such procedures as [the Arbitration Panel] may adopt,'' as opposed to CARP procedures adopted by the Librarian of Congress. Id. (citing section 1010(d)). Finally, argues EIA, section 1010 arbitration relates solely to whether given devices are subject to chapter 10 requirements and are therefore unrelated to the purpose or expertise of the CARPs to make royalty rate adjustments and distributions. Id. at 3-4. In addition to its comments regarding section 1010 arbitration, EIA believes that the issue of costs regarding both section 1010 and section 1004(a)(3) proceedings is not properly before the Copyright Office since neither is a CARP proceeding. Id. at 4. The Copyright Office reaffirms the conclusion announced in the Interim Regulations that proceedings under sections 1004(a)(3) and 1010 are not within the jurisdiction of the CARPs. 59 FR 23967 (1994). Proceedings to adjust the royalty maximum under section 1004(a)(3) shall therefore be handled solely by the Librarian, and proceedings under section 1010 shall not be subject to the rules and regulations governing the CARPs. It may be that an arbitration panel convened under section 1010 chooses to use some or all of the rules applicable to CARP proceedings; that choice, however, is up to the arbitration panel. See 17 U.S.C. 1010(d) (the arbitration panel is governed by ``such procedures as it may adopt''). With respect to the division of costs among the parties participating in a section 1004(a)(3) or section 1010 proceeding, we agree with the EIA that the issue is not ripe for decision since neither of these proceedings is within the scope of this rulemaking. VI. Costs The issue of the costs involved in the entire CARP process was understandably a serious concern of a number of commentators. These concerns included the payment and fees charged by arbitrators, deductions from royalty pools, and billing cycles for arbitrators. The commentators offered some unique solutions to these problems, some of which we are adopting in these Final Regulations. Sections 251.54, 251.65 and 251.74 are the principal regulations governing the costs of CARP proceedings.<SUP>10 Section 251.54 directs the CARP panels in the case of rate adjustment proceedings to establish each participating party's share of the costs of the proceeding. In the case of distribution proceedings, each participating party's cost is in direct proportion to its share of the distribution. Sections 251.65 and 251.74 allow the Library of Congress and the Copyright Office to recover their respective costs for rate adjustment and distribution proceedings. For rate adjustments, the Librarian and Office may deduct their reasonable costs from the relevant royalty pool. If no such pool exists, then the participating parties' costs shall be assessed directly to them. In distribution proceedings, reasonable costs may be deducted directly from the relevant royalty pool. --------------------------------------------------------------------------- \1\0Section 251.38 governs the accounting and costs that arbitrators are allowed to charge (meals, lodging, etc.). This section, however, relates to the ethical standards of arbitrators and is discussed in the context of subpart D of these regulations. --------------------------------------------------------------------------- A. Assessment of Arbitrator Costs in Distribution Proceedings We concluded in the Interim Regulations that we did not have the authority to deduct the costs of the CARPs from the relevant royalty pool, and could only deduct our costs. We noted that this was an unsatisfactory result, and described our effort to have Congress amend the statute. 59 FR 23977 (1994). Our proposed statutory amendment would allow the Librarian and the Copyright Office to deduct a CARP's costs from the relevant royalty pool, and pay the arbitrators with such deductions, before the fees were distributed to copyright claimants. Copyright Owners noted a problem with our proposal, specifically the provision which provided that deductions would be made ``before the fees are distributed to any copyright claimants.'' Copyright Owners submit that this sentence could be interpreted as suggesting that all royalty fees must remain on deposit until the final deduction for the costs of a CARP proceeding has been made. Such an interpretation, they argue, ``would contradict the authority to make partial distribution as found elsewhere in the statute and present a serious hardship to Copyright Owners because of the potential long delay between collection of royalty fees and their distribution after an arbitration hearing.'' Copyright Owners, comments at 35. They therefore recommend that the provision be amended to read ``Such deduction shall be made before the fees are fully distributed to all copyright claimants.'' Id. Aside from the legislative solution, the commentators offer other ways for handling the payment and costs of the CARPs. Copyright Owners offer a unique proposal: make a substantial partial distribution of royalties at an early stage of each distribution proceeding to an escrow account administered jointly by all of the claimants. The sole purpose of the escrow account would be to make funds available for timely payment of monthly CARP member billings, while avoiding the need for advance cash outlays from the claimants. Copyright Owners, comments at 33. Further partial distributions to the escrow account could, if necessary, be made during the proceeding, and any excess remaining after all CARP bills are paid could be distributed in accordance with the final distribution determination. Id. RIAA/AARC generally supports the proposed escrow account, but expresses concern that in DART proceedings, the escrow account could be depleted by monthly CARP payments before the end of the proceeding. RIAA/AARC also points out that monthly payments in a DART distribution proceeding are problematic since there has not yet been a DART distribution decision and there is no precedent to follow for division of royalties among the claimants and each claimant's pro rata share of expenses. RIAA/AARC, reply comments at 2-3. RIAA/AARC therefore recommends that the Copyright Office deduct all CARP expenses from the royalty pool at the end of a distribution proceeding, citing 17 U.S.C. 802(h)(1) and 802(c) as providing the Office with authority to make such deductions. RIAA/AARC, comments at 5. The method of payment of the CARPs is a problem, especially given our lack of statutory authority to pay the arbitrators directly. Unfortunately, the legislative solution discussed in the Interim Regulations, 59 FR 23977, failed for this Congress. Thus, we cannot pay the CARPs. We will seek the necessary statutory authority in the 104th Congress. Because of our lack of authority in this area, we are not adopting any regulations governing the method of payment of CARP costs. As discussed above, the Copyright Owners proposed the creation of an escrow account, administered by the parties, to pay the arbitrators. Compensation of the arbitrators is the responsibility of the parties to a proceeding. 17 U.S.C. 802(g). If Copyright Owners wish to establish such an escrow account, and can obtain the consent of all parties to the proceeding, they are free to do so. We note that in the proceeding to adjust royalty rates for the section 119 satellite carrier license in 1991, the parties paid an upfront sum to those arbitrators to begin the proceeding, and a final payment at the conclusion of the proceeding. We offer no opinion as to whether this is the appropriate manner in which to proceed, but offer it as a possibility to be considered by the CARPs who have the authority to direct the ``manner and proportion'' of payment of a CARP's costs. B. Assessment of Library of Congress and Copyright Office Costs in Rate Adjustment Proceedings Section 251.65 of the Interim Regulations allows the Library and Copyright Office to deduct their costs in rate adjustment proceedings from the ``relevant royalty pool,'' and, if no such pool exists, to assess the costs directly to the parties to the proceeding. RIAA/AARC and Copyright Owners oppose deductions from royalty pools for rate adjustment proceedings. RIAA/AARC submits that Sec. 251.65 is contrary to the intent of the CRT Reform Act. They note that 17 U.S.C. 802(h)(1) provides for assessment of costs directly to parties where ``no royalty pool exists from which [the Library and Copyright Office's] costs can be deducted-- i.e. a rate adjustment proceeding.'' Thus, according to RIAA/AARC, deductions can only be made from royalty pools in distribution proceedings and not in rate adjustment proceedings. RIAA/AARC, comments at 10-11. Furthermore, if costs are deducted from the relevant royalty pool for rate adjustment proceedings, then copyright owners will bear the entire brunt of the proceeding in contradiction to the Office's determination that both owners and users should share the cost of rate adjustments. Id. at 11. Copyright Owners believe that a portion of the costs of a rate adjustment could be deducted from a royalty pool, but submit that it is difficult to identify exactly what is the ``relevant'' royalty pool. Copyright Owners, reply comments at 1-2. Rate adjustment proceedings involve the setting of rates for future, not-yet-collected royalty funds. The ``relevant'' pools would therefore be the future funds affected by the rate change, rather than past funds. Copyright Owners submit that the Office should therefore seek the comments of the owners as to what is the proper meaning of the word ``relevant.'' Id. at 5. Furthermore, Copyright Owners argue that it is completely unfair for owners to bear all of the Office's expenses for rate adjustments, since users clearly benefit as well from the adjustments. They ask that the Office reinstate the deduction rule proposed in the NPRM which simply provides that rate adjustment costs will be assessed ``directly to the parties participating in the proceedings.'' Id. at 6 (citing 59 FR at 2565 (1994)). We agree that RIAA/AARC and Copyright Owners raise valid points with respect to Sec. 251.65. As we stated in the Interim Regulations, we believe that the burden of the Library and Office's costs in a rate adjustment proceeding should be shared by both owners and users. We did not intend to place the burden solely on copyright owners, although it is arguable that Sec. 251.65 appears to do that very thing. We also agree with Copyright Owners' assessment that the ``relevant'' royalty pool is not clear; it would seem that it may be necessary to amortize the costs over a number of royalty pools. In an attempt to solve these problems, we are therefore accepting Copyright Owners' suggestion of reinstating Sec. 251.65 as proposed in the NPRM. The section therefore now reads: In accordance with 17 U.S.C. 802(h)(1), the Librarian of Congress and the Register of Copyrights may assess the reasonable costs incurred by the Library of Congress and the Copyright Office as a result of the rate adjustment proceedings directly to the parties participating in the proceedings. C. Frivolous Claims Both RIAA/AARC and Copyright Owners are concerned with the costs that may be generated by frivolous claimants to royalty distributions. Section 251.54(a)(2) provides that CARPs may assess their costs in direct proportion to each party's share of the distribution. Thus, a party who received 0% of the distribution would bear 0% of the costs, even though the claim of that party may have contributed greatly to the costs of the other claimants. RIAA/AARC believes that every party participating in a distribution proceeding should be prepared to bear some portion of the procedural costs, regardless of whether or not it receives any portion of the royalty fund. RIAA/AARC, reply comments at 3. They recommend that the Office adopt some type of participation fee for distribution proceedings, similar to that used by other government agencies conducting proceedings. Id. at 4. In lieu of a participation fee, RIAA/AARC recommends that the CARPs be granted the discretion to allocate a share of expenses of the proceeding to bad faith or frivolous claimants who receive little or no share of the distribution. Id. at 4-5. Copyright Owners echo RIAA/AARC's concerns regarding frivolous claims and the added costs associated with those claimants. Copyright Owners, however, would resolve the problem by an amendment to the statute which they propose the Copyright Office seek. Such an amendment would provide that ``upon a finding of bad faith or other frivolous or vexatious conduct, the Librarian may allow a different allocation of costs of the proceedings as necessary to respond to such conduct.'' Copyright Owners, comments at 38. With regard to costs in distribution proceedings, section 802(c) is quite clear in providing that ``the parties shall bear the cost in direct proportion to their share of the distribution.'' 17 U.S.C. 802(c). No provision is made to charge parties fees for participating in distribution proceedings, or assessing costs against parties for frivolous behavior or claims. We cannot imply or interpret the statute to provide for such measures, nor are we prepared to seek an amendment of the statute to allow the Librarian to make an assessment of a claimant's conduct or behavior and impose an additional share of the cost of the proceedings against that party. Since the Librarian is only charged with handling matters preliminary to the arbitration and reviewing the CARP's decision, the Librarian is not in a proper position to evaluate the conduct of participants to a proceeding. There is no authority in the statute for the CARPs to change 17 U.S.C. 802(c)'s direction to assess costs in direct proportion to each party's share of the distribution, nor is there authority for the CARPs to sanction parties or individuals to a proceeding. The CARPs are, however, in the best position to assess the conduct of the participants to a distribution proceeding. Deliberate misrepresentation to a CARP by a party or individual to a proceeding will be referred by the Copyright Office to the Justice Department for possible prosecution under the applicable provisions of title 18 of the United States Code. D. Arbitrator Costs Section 251.54(a) provides that a CARP may ``assess its ordinary and necessary costs'' to the participants to a proceeding. NMPA/HFA urges the Office to adopt a mechanism for appealing the reasonableness of fees and expenses assessed. They recommend creation of a procedure, although they do not describe what kind of procedure or when and how it could be invoked, whereby the Librarian would be available in instances where the parties question the fees and expenses charged. NMPA/HFA, comments at 4. We are declining to adopt a fee review procedure at this time because we believe that the rules already contain adequate safeguards. Section 251.38 governs billing and provides that ``[a]rbitrators are bound by the hourly or daily fee they proposed to the Librarian of Congress when their names were submitted to be listed under Sec. 251.3, and shall not bill in excess of their proposed charges.'' 59 FR 23986 (1994). Subsection (b) further provides that ``[a]rbitrators shall not charge the parties any expenses in addition to their hourly or daily charge.'' The safeguards in these rules are reinforced by the agreement the arbitrators must sign stating they will abide by the terms of these Final Regulations including ``the billing restrictions specified in this subpart.'' Sec. 251.38(e). The regulations already contain substantial provisions to assure that arbitrators not charge excessive rates or expenses. Although our regulations do not specifically address the number of hours for which an arbitrator can charge, we expect that the arbitrators will be fair and charge for the actual amount of time they devoted to the proceedings. In some cases, the amount spent may be more or less for one arbitrator than it is for another. Should an arbitrator charge for an unreasonable number of hours that could not possibly bear any relationship to the amount of work performed, we believe that such action would amount to an ethical violation subject to the remedies of Sec. 251.39. We do not, however, intend to judge or measure the amount of time it should take an arbitrator to perform a specific task, and we therefore decline to create a billing review procedure. VII. Final Regulations The following is a section-by-section summary of the amended regulations, together with a discussion of the applicable comments on the corresponding provisions of the Interim Regulations. (a) Part 251--Copyright Arbitration Royalty Panels Rules of Procedure Part 251 contains most of the rules and procedures governing the operation of the CARPs and, like the rules proposed in the NPRM, received the greatest number of observations and suggestions from the commentators. It is divided into seven subparts, identified as subparts A through F. Subpart A, entitled ``Organization,'' describes the composition and selection process for the CARPs. Subparts B and C, ``Public Access to Copyright Arbitration Royalty Panel Meetings'' and ``Public Access to and Inspection of Records,'' remain virtually the same as those adopted in the Interim Regulations, with only a few minor amendments. Subpart D, ``Standards of Conduct,'' prescribes the financial and ethical requirements for arbitrators, and governs ex parte communications, billing, sanctions for misconduct, and other matters involving ethical standards. Subpart E, ``Procedures of Copyright Arbitration Royalty Panels,'' prescribes the procedures to be followed by the CARPs in conducting proceedings, including those governing submission of evidence, conduct of hearings, reports of the CARPs, and orders of the Librarian. Subparts F and G,'' Rate Adjustment Proceedings'' and ``Royalty Fee Distribution Proceedings,'' provide certain additional requirements inherent in rate adjustment and distribution proceedings. We have already described most of the major issues raised by the commentators to the Interim Regulations and discussed our responses and amendments. The following summarizes other additions and changes to the Interim Regulations in the various subparts of part 251. (1) Subpart A--Organization Arbitrator lists. Section 251.3 describes the information that must be submitted to the Librarian by an arbitration association for each person to be eligible to serve on a Copyright Arbitration Royalty Panel. Section 251.3(a)(5) requires ``a description or schedule detailing fees proposed to be charged by the person for service on a CARP.'' James Cannings submits that the proposed fees ``should reflect the current market daily or hourly rate as are charged by arbitrators who serve National Arbitration Associations, such as, the Arbitration Association of America.'' Cannings, comments at 2. For reasons stated above in the discussion of our rejection of a fee schedule, it is not appropriate for the Librarian or the Copyright Office to impose fee restrictions on persons seeking to be arbitrators. Although the fee information provided by a potential arbitrator will have a bearing on his or her selection, we decline to amend Sec. 251.3(a)(5) to adopt fee limitations. Qualifications of the arbitrators. As was the case with the comments filed in response to the NPRM in this rulemaking proceeding, Copyright Owners had disparate opinions regarding the requirement in Sec. 251.5 that all CARP arbitrators be admitted to the practice of law. Program Suppliers filed a separate comment in response to the Interim Regulations devoted solely to arguing that the Librarian should also consider non-lawyers in the selection process, while other copyright owners identified as Certain Copyright Owners filed a separate comment urging that the Copyright Office retain the requirement. Program Suppliers advance essentially the same argument, which they made in response to the NPRM, that allowing non-lawyers as arbitrators could prove invaluable in expediting the arbitration process: In reaching its ruling, the Office ignored the important value that non-lawyers with expertise in the types of statistical and economic studies that comprise the heart and body of distribution and rate adjustment evidence could bring to the decisionmaking process. Having arbitrators who are familiar with statistical and economic studies similar to those presented in prior rate adjustment and distribution proceedings would give each panel added competence to deal with the substantive issues raised, and thus assist the decisionmaking. It is ironic, to say the least, that the Office's ruling was based on a concern about the lack of time for non-lawyers to learn the nuances of legal rulings, but ignored the possibility that lawyer-arbitrators might have absolutely no familiarity with the type of complex studies presented by expert witnesses over and over again in prior distribution and rate adjustment hearings. Although legal rulings can affect certain aspects of a hearing, interpretation and understanding of the conflicting substantive evidence is crucial to reasoned final determinations setting rates or distribution royalties. Program Suppliers, comments at 2-3. Program Suppliers believe that retaining subsection (c) of Sec. 251.5 requiring arbitrators to have ``[e]xperience in conducting arbitration proceedings or facilitating the resolution and settlement of disputes'' would satisfactorily provide the potential arbitrator with the type of experience necessary to conduct arbitration proceedings. Id. at 2. Certain Copyright Owners argue that Program Suppliers' arguments have already been rejected in the Interim Regulations, and that Program Suppliers fail to make any showing that ``the list already developed will fail to yield at least three Panel members who are capable of resolving royalty disputes in a fair and efficient manner.'' Certain Copyright Owners, reply comments at 2. Certain Copyright Owners believe that economic expertise is not necessary, and might cause an undue bias among the panel members. Id. The Copyright Office has reconsidered the lawyer requirement imposed by Sec. 251.5 and reaffirms its decision to retain the requirement. It appears that Program Suppliers are not so much concerned with allowing non-lawyers to serve on CARP panels as they are with seeing economists among the listed arbitrators. Section 251.5 in no way prevents economists or those with economic training from serving on a CARP, provided that they are admitted to the practice of law. Furthermore, we agree with Certain Copyright Owners' observation that Program Suppliers have failed to demonstrate any deficiency in the quality of experience of the potential arbitrators appearing on the current list. See 59 FR 24486 (1994). The listed arbitrators have diverse backgrounds and training, including economic expertise. Moreover, all of the listed persons have experience in the practice of law which, given the shortness of the arbitration period, is important in the efficiency and speedy disposition of CARP proceedings. The Copyright Office, therefore, declines to make any changes to Sec. 251.5. (2) Subpart B--Public Access to Copyright Arbitration Royalty Panel Meetings CARP Meetings. Copyright Owners make several suggestions with respect to meetings of the CARPs. Because confidential proprietary information is sometimes introduced into the record, it is necessary for the CARP to close a meeting for the purposes of receiving that information. When confidential material is involved in only a limited portion of the meeting, it is not necessary to close the entire meeting. The Interim Regulations, however, provide only for the closing of an entire meeting. Copyright Owners therefore suggest that Secs. 251.11(b) and 251.13 be amended to make clear that a CARP may close only that part of a meeting during which confidential information is discussed; all other portions of the meeting, however, would be open. Copyright Owners, comments at 26. Copyright Owners also note that because it is often impossible to determine when and if confidential information may be disclosed at a meeting, it may be impossible to give the seven-day advance notice in the Federal Register required by Sec. 251.11(b). Copyright Owners therefore suggest that a general notice of the possibility of the introduction of confidential information during the course of a hearing should suffice to meet the notice requirements even though it would be impossible to provide a specific date and time of the closed portion of the meeting. Id. Another issue raised by Copyright Owners is the treatment of a CARP's internal deliberations. According to Copyright Owners, a literal reading of Subpart B would apply to confidential deliberations among CARP arbitrators. ``Thus, for example, if the members of a CARP want to talk over an objection to testimony during the course of a hearing before ruling on it, they would be obliged to have that discussion transcribed and to announce the fact of that confidential `meeting' in the Federal Register.'' Id. at 26-27. Copyright Owners therefore propose that the procedures of Secs. 251.14 and 251.15 be modified so that (a) transcripts or minutes are not necessary for internal CARP deliberations, and (b) the procedures for closed meetings in Sec. 251.14 do not apply to such deliberations. Id. at 27. The points made by Copyright Owners are well taken. In order to allow CARPs to close only a portion of a meeting, as opposed to an entire meeting, for the taking of confidential information and related material, we are amending Secs. 251.11(b) and 251.13 by adding the phrase ``any portion of a meeting.'' With respect to seven-day advance publication notice in the Federal Register of a meeting that may be closed in part or in whole, we agree that a general notice of the possibility of the introduction of confidential information should suffice to satisfy the notice requirements. The notice of publication in the Federal Register therefore shall, as a matter of policy, contain such a general statement. Finally, with respect to the procedures required for closed meetings applying to CARP deliberations, we agree with Copyright Owners that application of those procedures is neither desirable nor appropriate. We are therefore amending Sec. 251.14 by adding a new subsection (d) which provides that ``[t]he procedure for closed meetings in this section and Sec. 251.15 shall not apply to the internal deliberations of arbitrators carried out in furtherance of their duties and obligations under this chapter.'' (3) Subpart C--Public Access to and Inspection of Records No comments were received regarding subpart C. However, section 251.22(c) has been amended to delete the Sec. .40 per page charge for photocopies of CARP or Copyright Office records. Because such charges change from time to time, the section now reads that photocopies are available at the ``applicable Office charge.'' (4) Subpart D--Standards of Conduct Financial conflict of interests. When we originally proposed financial conflict of interest rules, our main concern was with their proper scope. Did we propose rules that did not cover enough situations, and therefore miss some very real conflicts of interest, or, on the other hand, did our proposed rules go too far, and eliminate qualified persons for inconsequential reasons? In an effort to reach the proper scope, we not only proposed rules, but we also asked for comments on certain hypothetical situations that went beyond the scope of our proposed rules. The Copyright Owners' response reflects the difficulty of drawing the proper line. While they offered opinions about the hypothetical situations that indicated a belief that our proposed rules did not go far enough, ultimately they did not ask to expand the rules, but proposed handling the gray area questions on a case-by-case basis, using the disclosure procedure to the parties described in section 251.32(b)(2) as a method to decide whether the conflict is disqualifying. The Copyright Owners stated: Copyright Owners believe that decisions about the financial conflicts of potential arbitrators must be made on a case-by-case basis, with no single application of the rules being dispositive on a specific case. . . . The screening of arbitrators for any panel ought not to occur through rote application of the rules * * * If the Librarian finds a question arising as to whether a conflict exists as to a particular arbitrator, further information should be made available to the parties so that they may determine whether the person should be disqualified or whether the potential conflict might be waived. Copyright Owners, comments at 21. We agree with the Copyright Owners that this is the proper approach. Therefore, we have not modified the scope of the financial conflict of interest rules, but we have made a change in the disclosure rule, section 251.32(b)(2). Whenever a potential arbitrator has a conflict of interest as defined by our rules and has indicated that he or she wants this conflict to be disclosed to the parties, or whenever a potential arbitrator has an interest beyond the specified scope of the rules which raises our concern, section 251.32(b)(2) provides we will list these interests anonymously in an order issued to the parties to each upcoming proceeding at the time the Librarian establishes for precontroversy motions, and we will request that the parties indicate within 30 days which conflicts or potential conflicts they believe are disqualifying. For those interests within the scope of our conflict of interest rules, the indications of the parties will be dispositive. For those potential conflicts outside of the scope of our conflict of interest rules, the indications of the parties will aid the Librarian in his decision.<SUP>11 --------------------------------------------------------------------------- \1\1For example, arbitrator X has a spouse who is employed by one of the parties to the proceeding. Because that is a interest within the scope of our rules, the response of the parties will be dispositive. That is, if any one of the parties objects, arbitrator X may not serve. On the other hand, if arbitrator X has a parent who is employed by one of the parties, that would be an interest outside of the scope of our rules. In that case, if one or more of the parties objects, that objection will be taken into account when the Librarian makes his decision, but the objection will not automatically disqualify arbitrator X. --------------------------------------------------------------------------- There was, however, one area in which the Copyright Owners commented that the scope of the conflict of interest rules was too broad. Section 251.31(d)(3) imputes the financial interest of the arbitrator's general partner to the arbitrator. The Copyright Owners believe that section 251.31(d)(3) means that each potential arbitrator would have to inquire of each of his/her general partners about their personal investments. The Copyright Owners consider this an unworkable burden and doubt that any potential arbitrator would be influenced by the personal holdings of a general partner, especially if that general partner's financial interest is unknown to the arbitrator. The Copyright Owners ask that an exception to the rule on imputation of interests be made in the case of a general partner's personal financial holdings. Copyright Owners, comments at 24-25. We agree, and section 251.31(d)(3) has been modified to reflect this exception. Ex parte communications. In our proposed interim rules, distinctions were made among four classes of persons concerning ex parte communications: (1) the Librarian of Congress and the Register of Copyrights, (2) the selected arbitrators, (3) the listed arbitrators, and (4) the Library and Copyright Office personnel. In particular, we drew a distinction between selected arbitrators who are subject to a total ban on contact between them and interested parties in their controversy, and listed arbitrators who are not subject to a total ban on contact, but who may not communicate with any interested party about the merits of any past, pending, or future proceeding relating to CARP. Both the Copyright Owners and James Cannings state that they believe no distinction should be made between selected and listed arbitrators, and that there should be a total ban on contact with all arbitrators. The Copyright Owners argue for the highest standard concerning selected and listed arbitrators because of ``the substantial financial interests at stake.'' The Copyright Owners, however, would mitigate the severity of a total ban to permit nonsubstantive pleasantries between arbitrators and parties. Finally, the Copyright Owners note that the restrictions concerning arbitrators are against contact with any interested ``party'' and would prefer that it be changed to ``person'' because of what they believe to be the ambiguous meaning of the word ``party.'' Copyright Owners, comments at 15-18. Having reviewed the comments of the Copyright Owners and James Cannings, we continue to believe that the distinction between selected and listed arbitrators is valid. In any given year, 75 persons will be listed to be available to serve as arbitrators. A total ban on contact with all 75 persons would be unworkable, and unfair to the persons offering their services. For the remote chance of being selected, they would be giving up a degree of personal freedom, not for any actual impropriety but for the avoidance of the appearance of impropriety. However, we believe it is fair and highly necessary that listed arbitrators understand that they may not engage in any actual impropriety, that is, discuss the merits of any royalty proceeding, past, present or future. This is a much narrower and more appropriately tailored limitation on their activities. Once selected, the total ban on contact with the three selected arbitrators is essential. It assures fairness to all parties by guaranteeing that no opportunity for influence can possibly occur. Procedural requests of the selected arbitrators should be routed through Library or Copyright Office personnel who are assigned to support the arbitrators. We do agree, however, with the Copyright Owners' request that innocent pleasantries should not be subject to the total ban, and that the word ``party'' should be changed to ``person'' to avoid any ambiguity. The changes to section 251.33 have been made accordingly. Gifts and other things of monetary value. In our interim rules, we make a distinction between selected arbitrators who are subject to a total ban on soliciting or accepting gifts or any other thing of monetary value from an interested person, and listed arbitrators who may solicit or accept gifts of less than $20 per occasion, and not more than $50 per year from any one source. We also provide that a listed arbitrator may accept a gift beyond the $20-$50 limit where it is clear that the gift is motivated by a family relationship or a personal friendship rather than the potential of the listed arbitrator to be selected. The Copyright Owners and James Cannings believe that no distinction should be made between selected and listed arbitrators and that they should all abide by a total ban on the soliciting or acceptance of any gift. The Copyright Owners state that applying the total ban to listed arbitrators would ``reduce the perceived opportunities for influencing of either listed or selected arbitrators.'' Copyright Owners, comments at 18. Again, as stated above, we believe that the restrictions on the activities of listed arbitrators should be limited to actual improprieties only, considering that they may never be selected. Requiring listed arbitrators to refuse gifts no matter how small, and to avoid normal relations with existing friends and family simply to avoid the appearance of impropriety is too great a restriction, and may result in various individuals refusing to participate. The exceptions for nominally valued gifts and for gifts from existing friends and family were derived from the regulations issued by the Office of Government Ethics, and represent their line-drawing for thousands of compensated government employees who are in a position to confer a benefit on a private party (versus listed arbitrators who are neither compensated nor in a position to confer a benefit). We do not believe that a lunch valued at less than $20 where no discussion of the merits of any past, present or future proceeding takes place would result in the influencing of any listed arbitrator. Consequently, the distinction between selected and listed arbitrators is retained in the final rules. Post-arbitration employment restrictions. While we did not receive any comments on our rule against arbitrators being employed for three years by any party, person or entity with a financial interest in the proceeding, we did receive a comment on the hypothetical we posed based on this section. The hypothetical asked whether an arbitrator who has ruled on a cable rate adjustment may take a cable system as a client afterwards if that cable system, although affected by the outcome, had neither participated in the proceeding nor authorized anyone else to represent it. The Copyright Owners stated that they believed the arbitrator could take the cable system as a client, but gave no reasons, and prefaced their answers to all the hypotheticals by saying they were difficult to answer given the limited facts available. Copyright Owners, comments at 22, 24. We believe that since we received only one limited comment on this hypothetical, we do not have sufficient comments to render a conclusion. We reserve judgment until an actual case presents itself. In the meantime, the rule is adopted as proposed. Remedies. Currently, section 251.39 provides sanctions against selected arbitrators, listed arbitrators, and outside parties who violate the standards of conduct. The Copyright Owners argue that sanctions should also be put in place for Library and Copyright Office personnel who violate the standards. Copyright Owners, comments at 24. Library of Congress Regulations (LCRs) already set forth sanctions for Library and Copyright Office personnel who violate internal personnel rules. LCR 2023-1 instructs all staff members to avoid actions which might result in or create the appearance of using public office for private gain, giving inequitable and improper preferential treatment to any person to the prejudice or detriment of others, or compromising the independence or impartiality of the Library. We believe this applies to the rules on ex parte communications, and would cover any disclosure of nonpublic information, even though section 251.37 only applies to arbitrators. In addition, however, the Library's General Counsel, who serves as the agency's ethics officer, has issued a memorandum that will be circulated to all personnel likely to have any interaction with a CARP detailing the new situations that could arise and how employees should respond to them. (5) Subpart E--Procedures of Copyright Arbitration Royalty Panels a. Formal Hearings. (i) Phase I/Phase II. In the preamble text to the Interim Regulations, we asked several questions with regard to the procedural division of royalty distribution proceedings. The Copyright Royalty Tribunal traditionally divided distribution proceedings into two phases: Phase I determined the percentage allocation among the categories of claimants, while Phase II resolved disputes within a claimant category. The Tribunal practice, however, was just that, and was never embodied in the rules. We sought comment on the following: Is the procedure of dividing a cable distribution proceeding into Phases I and II a precedent that is binding on the Copyright Office? If not, should it nonetheless be followed? If it should be followed, should we adopt rules governing the procedure? Should those rules include a definition of each of the Phase I categories? 59 FR at 23976-23976 (1994). Copyright Owners urge that, regardless of the binding effect of the former Tribunal's practice on the Office, the division of proceedings into Phase I and Phase II should continue in order to prevent chaos in the distribution process. Copyright Owners, comments at 13. They note that Phase I claimant categories offer two primary benefits to the distribution process. First, by allowing each claimant category to collect the total royalty awarded to it and distribute that total to its individual claimants, the ``process frees the Copyright Office from the expense of mailing hundreds of distribution checks to individual claimants each time a distribution is made.'' Id. at 14. Second, the grouping together of claimants into categories reduces Phase I litigation to less than ten parties, rather than hundreds of individual claimants. Id. ``In short, the established Phase I/Phase II divisions provide very strong procedural and organizational efficiencies that have worked well in the past and should be continued in the future.'' Id. Copyright Owners urge the Office to adopt procedures governing Phase I/Phase II proceedings that would allow for separate hearings of Phase I and Phase II proceedings, but offer no comment or suggestion as to what those rules should be. Id. at 14-15. They also believe that definitions of Phase I categories should be available to arbitrators, but not included in these rules because ``it could create unnecessary rigidity that would fail to accommodate changing conditions.'' Id. at 15. Copyright Owners therefore suggest that parties provide a stipulated set of program definitions to arbitrators at the start of each distribution proceeding. Id. The Copyright Office believes that the division of distribution proceedings into Phase I and Phase II categories provides an efficient manner for conducting such proceedings, and therefore will retain the use of the categories. In dividing distribution proceedings into Phase I and Phase II categories, we will look to Tribunal precedent for guidance, as well as the exigencies of each individual case. For these reasons, we do not believe that it is necessary to adopt separate procedures for Phase I and Phase II proceedings, as is suggested by Copyright Owners. The Copyright Royalty Tribunal functioned for fifteen years without separate rules for each type of proceeding, and exercised its discretion to divide each distribution into Phase I and Phase II categories on a case-by-case basis. The procedural rules of the subchapter applicable to distribution proceedings apply with equal basis to each controversy, regardless of whether it is Phase I or Phase II, and therefore do not require separate sets of rules. Furthermore, it is the Librarian who shall determine the number and category of controversies in each distribution proceeding, and submit each controversy or controversies to one or more CARPs as is appropriate. Copyright Owners are therefore correct in their assertion, see comments at 14-15, that the nature and extent of controversies in one royalty distribution proceeding may require the convocation of more than one CARP for resolution. Thus, for example, a CARP may be convened to resolve controversies in Phase I, and another may be required at a later date to resolve controversies in Phase II. The only way to make such determinations is on a case-by-case basis, as was done by the former Tribunal, and the Office therefore heeds the advice of Copyright Owners by declining to adopt rules governing the identification and classification of Phase I/Phase II procedures which could ``create unnecessary rigidity that would fail to accommodate changing conditions.'' Copyright Owners, comments at 15. The Copyright Office also accepts Copyright Owners' suggestion of allowing parties to a proceeding to stipulate the definitions of Phase I categories and programs to the arbitrators in that proceeding. In order to allow arbitrators a sufficient amount of time to become familiar with the definitions, the Librarian will, in the notice establishing the 45-day precontroversy discovery period, instruct the parties to the proceeding to stipulate a complete set of definitions by the end of the precontroversy discovery period. If the parties are unable to reach agreement by that date, the Copyright Office will, in accordance with our authority to provide support to the CARPs under 17 U.S.C. 801(d), provide the arbitrators with the necessary definitions of Phase I categories and programs to allow them to accomplish their task. (ii) Paper proceedings. Section 251.41(b) permits the parties to a proceeding to petition the Librarian to have their controversy decided solely on the submission of written pleadings. The petition may be granted if ``(1) there is no genuine issue as to any material fact, or (2) all parties to the controversy agree with the petition.'' 59 FR 23976 (1994). Copyright Owners believe that Sec. 251.41(b)(2) is in need of clarification. They note: As currently drafted, Section 251.41(b)(2) allows rulings only in uncontested cases where ``all parties to the controversy agree with the petition.'' Of course, if all parties agree with the petition, then there would be no need for a ruling. Copyright Owners believe that Section 251.41(b)(2) was intended to allow ruling where all parties agree with the request that the issue be decided by petition, regardless of whether they agree with the merits of the petition. Copyright Owners, comments at 31. Copyright Owners' point is well taken. The intention of the rule is to allow the parties to a proceeding to petition the Librarian and dispense with formal proceedings. The CARP panel would then decide the controversy or rate adjustment on the basis of written pleadings only, i.e., a ``paper'' proceeding. In deciding whether to allow a paper proceeding before a CARP, the petition must demonstrate that (1) there is no genuine issue of material fact involved in the proceeding (not the petition), or else 2) the parties unamimously agree that they wish to have a paper proceeding. If either one of these factors is properly represented in the petition, the Librarian may (not must) grant the petition, or can designate the issue of whether a paper proceeding would be proper to the CARP. Section 251.41(b)(2) is only intended to allow the Librarian to decide if a paper proceeding before a CARP would be appropriate; it is not designed to allow the Librarian to decide the merits of a paper proceeding or the case. To clarify the intention of the rule, we are amending it. b. Conduct of hearings: Role of arbitrators. Section 251.46(b) provides that ``Only the arbitrators of a CARP, or counsel as provided in this chapter, shall question witnesses.'' James Cannings argues that the rule, as drafted, precludes parties from appearing pro se before the CARPs, since only the CARPs and ``counsel'' can question witnesses. Cannings, comments at 2. Section 251.46(b) does not prohibit pro se representation in a CARP proceeding. A pro se litigant acts as his own counsel, and is entitled to question witnesses in the same manner as parties represented by counsel. No amendment to Sec. 251.46(b) is necessary. c. Witnesses and Counsel. Copyright Owners suggest that there may be some confusion with the drafting of Sec. 251.47. Subsection (l) provides: A CARP will encourage individuals or groups with the same or similar interests in a proceeding to select a single representative to conduct their examination and cross-examination for them. However, if there is no agreement on the selection of a representative, each individual or group will be allowed to conduct its own examination and cross examination, but only on issues affecting its particular interests, provided that the questioning is not repetitious or cumulative of the questioning of other parties within the group. 59 FR 23989 (1994). Copyright Owners believe that, as currently drafted, the subsection ``seems to require that all parties with a similar interest accede to a single counsel for examination or cross-examination of all witnesses. It is unlikely that parties would agree to such a broad transfer.'' Copyright Owners, comments at 32. Copyright Owners therefore suggest that the phrase ``of any given witness'' be added each time after the word ``cross-examination'' to clarify that agreements between parties of similar interest to utilize one representative for questioning applies only to individual witnesses, and not across the board for an entire proceeding. Id. We do not perceive the confusion expressed by Copyright Owners and believe that subsection (l), as drafted, permits parties with similar interest to agree to one representative for examining and cross- examining either one witness or as many as the agreement allows. Nevertheless, in the interest of clarity, we are adopting Copyright Owners' suggested amendment. d. Transcript and Record. In our discussion of Sec. 251.49 in the Interim Regulations, we solicited comments on whether the hearing sessions should be recorded on video as well as audio tape. We noted that videotaping would add to the cost of the proceeding, but it would also: ``(1) Ensur[e] the accuracy of the official transcript, (2) allow[] the arbitrators to reach a better decision by helping them to review the case more accurately, and (3) afford[] arbitrators who missed any portion of the proceeding, because of illness or because they were appointed after the proceeding had begun, an opportunity to make up for their absences. 59 FR at 23977 (1994). Copyright Owners are opposed to the videotaping of proceedings, arguing that they ``do not believe that any advantage derived from videotaping would be worth the considerable expense and difficulty associated with video recording.'' Copyright Owners, comments at 29. They also note that videotaping ``could, in fact, have the unintended and perverse effect of increasing the number of hearing days missed by an arbitrator who considers seeing a taped performance as equivalent to being present during the live presentation.'' Id. For these reasons, we will not videotape distribution or rate adjustment proceedings, unless the parties to a particular proceeding unanimously ask us to do so. (6) Rate Adjustment Proceedings Settlements. (i) Settlement period. Section 251.63 provides a 30-day period before commencement of a rate adjustment proceeding to allow for consideration of the rate adjustment petition and, more significantly, to give the parties an opportunity to settle their differences. We are amending this section to make it clear that the Librarian shall designate this 30-day period prior to, and separate from, the 45-day period for precontroversy discovery. We are also amending Sec. 251.64 to reflect that the arbitration proceedings will commence after both the 30-day period for settling rate differences, and the 45-day period for precontroversy discovery. (ii) Universal Settlements. In the Interim Regulations, we asked two questions related to settlement of rate adjustments: If a settlement is reached, would it be a useful alternative to the convening of a CARP for the Library/Office to propose the agreed-upon rate to the public in a notice-and-comment proceeding? Does the Librarian have the authority to adopt such a procedure, or would the convening of a CARP be required? 59 FR 23978 (1994). RIAA<SUP>12 and Copyright Owners believe that in the case of a universal settlement a CARP would have no authority over a proceeding. The Office would therefore be responsible for amending the rules, after a public notice-and-comment period, to reflect the agreed upon rate. RIAA/AARC, comments at 8; Copyright Owners, reply comments at 6. RIAA argues that the CARPs' authority is limited to controversies over royalty rates; if there is no controversy because there has been a settlement, then there is no CARP authority. RIAA/AARC, comments at 8-9 [(citing our NPRM, 59 FR 2553 (1994)]. Copyright Owners note that convening a CARP after settlement has been reached ``would make no sense'' and ``would subject the owner/user participants to needless expense.'' Copyright Owners, reply comments at 6-7. A public notice- and-comment period ``should provide the Librarian with an adequate record on which to determine whether to amend the regulations consistent with the terms of the settlement.'' Id. at 8. --------------------------------------------------------------------------- \1\2AARC took no position on this particular issue involving rate adjustment proceedings. --------------------------------------------------------------------------- NMPA/HFA believes that the rules should provide the parties to a rate adjustment proceeding with the option of either having a CARP convened, or submitting the agreed upon rate to a public notice-and- comment proceeding. NMPA/HFA, comments at 2. NMPA/HFA believes that the statutory authority to provide such procedures ``can be fairly implied from the Reform Act's direction that the Librarian adopt procedures and regulations relating to CARP proceedings and the Reform Act's express grant of authority to the Librarian to make the final determination in rate adjustment proceedings.'' Id. at 3. We agree with Copyright Owners that it would make little sense to go through the time and expense of convening a CARP solely for the purpose of approving a settlement agreement. Without deciding the issue of whether a CARP would have jurisdiction in such cases, we are amending Sec. 251.63 by adding a new subsection: (b) In the case where a settlement is reached as to the appropriate royalty rate, the Librarian may, upon the request of the settling parties, submit the agreed upon rate to the public in a notice-and-comment proceeding. The Librarian may adopt the rate embodied in the proposed settlement without convening an arbitration panel, provided that no opposing comment is received by the Librarian from a party with an intent to participate in a CARP proceeding. (7) Part 252--Filing of Claims to Cable Royalties Compliance with statutory dates. Section 252.4 describes the circumstances under which a claim to cable copyright royalties must be filed in order to be considered timely. (i) Delivery of claims. We are amending Sec. 252.4(a) to adjust for some of the difficulties faced by the Copyright Office in receiving cable royalty claims on a timely basis. Unlike the CRT, the Copyright Office and the Library of Congress are large institutions receiving a tremendous amount of mail each day, only a small percentage of which involves CARP matters. For the July 1994 filing period, we experienced difficulties with cable and satellite claims arriving at different locations of the Library by many different means of delivery (U.S. mail, messenger service, private mail carrier delivery). In order to assure that claims arrive during the statutorily prescribed time period, we are amending Sec. 252.4(a) to specify the two methods by which claims may be delivered to the Copyright Office. The first method is by mailing the claim to the official CARP address with the U.S. Postal Service, proper postage attached, so that when the claim arrives at the Copyright Office, it bears a July U.S. postmark. The second method is hand delivery to the Office of the Register of Copyrights, located in Room 403 of the James Madison Building, 101 Independence Avenue SE., Washington, DC 20540, during normal business hours in the month of July. Such hand delivery may be done by the claimant itself, or by the claimant's agent, or by a private delivery carrier (ex. Federal Express, DHL, messenger service) or other such manner. Hand delivery of claims to the mail receiving area of the Library of Congress, or to other locations in either the Library or the Copyright Office, is not compliance with the regulation. Claims which are hand delivered to other locations in the Library or Copyright Office will be dismissed if the Office cannot conclusively determine that the claim was physically located on Library and/or Copyright Office premises during the month of July. (ii) U.S. postmark. Canadian claimants challenge the requirement in Sec. 252.4(a)(2) that mailed claims must bear a July U.S. postmark. We took this provision directly from the Copyright Royalty Tribunal's rules. See 59 FR 23979 (1994). Canadian Claimants acknowledge that they did not object to the Tribunal's initial adoption of U.S. postmark requirement, but state that they have experienced ``difficulties'' with the requirement since its adoption, although they do not precisely state what those ``difficulties'' are.<SUP>13 Canadian Claimants, comments at 2. They therefore urge the Office to accept both Canadian and U.S. postmarks. Id. --------------------------------------------------------------------------- \1\3Canadian Claimants state earlier in their comment that their membership changes from year to year and that produces ``the constant presence of new claimants who are unaware of the filing requirements and appear on the scene at (or shortly after) the last moment * * *'' Id. Presumably it is the last minute identification of Canadian copyright owners eligible for cable royalties that produces the ``difficulties.'' --------------------------------------------------------------------------- We discussed in the Interim Regulations the Copyright Owners' request that we allow July mailings from Canadian and Mexican post offices. See 59 FR 23979 (1994). We declined the request, but stated that ``we invite them [Copyright Owners], and any other interested parties, to provide further information and comments on the question.'' Id. Our request for further information emanates from our concern with compliance with the statute. The statutory requirement for filing cable claims is clearly spelled out in 17 U.S.C. 111(d)(4)(A): ``During the month of July in each year, every person claiming to be entitled to compulsory license fees for secondary transmissions shall file a claim with the Librarian of Congress * * *'' The statute requires that the claim be with the Librarian during the month of July, arguably meaning in his possession. However, we accept the submission of a claim to the U.S. Postal Service, as statutorily sufficient, providing it bears a July U.S. postmark. The postmark is an acknowledgment that the claim was validly tendered with the U.S. Government in the month of July. Our concern with allowing Canadian and Mexican postmarks is that those marks would not necessarily prove compliance with the statute. Neither the Canadian nor the Mexican postal service is part of the U.S. Government. Furthermore, if we were to allow Canadian and Mexican postmarks, we would have to allow national postmarks from all countries, since there are some copyright owners of cable retransmitted programming that do not reside in the United States, Canada or Mexico. Copyright Owners and Canadian Claimants' desire for allowing Canadian and Mexican postmarks appears to be motivated by the desire ostensibly to add a few more days to the claim period. We, however, agree with what the Tribunal said in 1989 when it adopted the July U.S. postmark requirement: The Tribunal does not believe that our insistence that either a claim be received in our office during July or that it bear a July U.S. postmark is too restrictive. The claim itself is easy to prepare. No government forms are necessary. The information that is required can be put on one page. Further, the claimant has six months from the close of the calendar year to prepare it, and the entire month of July to submit it to the Tribunal. Our proposed rule provides a bright line test which should end all questions of fact regarding the timeliness of the claim. 54 FR 12614, 12615 (1989). For these reasons, we are not adopting the Canadian Claimants' suggestion. (iii) Proving mailed claims. Section 252.4(e) provides in the pertinent part that: In the event that a properly addressed and mailed claim is not timely received by the Copyright Office, a claimant may nonethe less prove that the claim was properly mailed if it was sent by certified mail return receipt requested, and the claimant can provide the receipt. 59 FR 23993 (1994). Copyright Owners believe that this provision, as drafted, could cause some confusion. Copyright Owners, reply comments at 8. They note that there are two receipts associated with certified mail--the one given the sender by the Post Office and the one signed by the receptionist and returned to the sender--and that subsection (e) does not identify which receipt is acceptable proof. Copyright Owners, however, state that our discussion of the provision in the Interim Regulations makes it clear that either receipt would be acceptable. See 59 FR 23980 (1994). (``If the claim was sent by certified mail, return receipt requested, we will accept the claim if the claimant can produce the receipt showing that it was properly mailed.'') In order to clear up any possible ambiguity in the regulation, the Copyright Owners propose that we amend subsection (e) to read: In the event that a properly addressed and mailed claim is not timely received by the Copyright Office, a claimant may nonetheless prove that the claim was properly mailed if it was sent by certified mail return receipt requested, and the claimant can provide the receipt showing that it was properly mailed or timely received. Copyright Owners, reply comments at 9. We are adopting the Copyright Owners' suggestion. (8) Part 257--Filing of Claims to Satellite Carrier Royalty Fees Part 257 remains unchanged, except that we amend Sec. 257.4(a) regarding timely filing of claims, discussed above, and accept Copyright Owners proposed amendment regarding the proving of mailed satellite carrier royalty claims through the use of certified mail return receipt requested. Sec. 257.4 (e). We are also retaining the requirement of a U.S. postmark for satellite carrier claims, Sec. 257.4(a)(2), for the same reasons we are retaining the requirement for cable claims. (9) Part 259--Filing of Claims to Digital Audio Recording Devices and Media Royalty Payments Consistent with our decision concerning joint claims for cable and satellite carriers, Sec. 259.3 is amended to require that joint claimants to the DART fund include a list of all their joint claimants when the claim is filed, except, as discussed above, the performing rights societies will receive no exemption from this requirement. Performing rights societies will have to list the members and affiliates they have signed to represent in DART as part of their filing a claim. As a result, the current Sec. 259.3(d), which allows joint claimants to lump their claims together after the claim period, and the current Sec. 259.3(f) which provides that the Office may require the productions of the list after the claim period ends, are deleted. As a practical matter, joint claimants who decide after the claim period to join together will simply report to the Office that they have settled, and no need to consolidate their claim exists. In addition, we amend Sec. 259.5(a) regarding timely delivery of claims and accept the Copyright Owners' proposed amendment of Sec. 259.5(e) regarding the proving of mailed DART claims through the use of certified mail return receipt requested. List of Subjects 37 CFR Part 251 Administrative practice and procedure, Hearing and appeal procedures. 37 CFR Part 252 Cable television, Claims, Copyright. 37 CFR Part 253 Copyright, Music, Radio, Rates, Television. 37 CFR Part 257 Cable television, Claims. 37 CFR Part 259 Claims, Copyright, Digital audio recording devices and media. Final Regulations For the reasons set out in the preamble, 37 CFR chapter II is amended as follows: PART 251--COPYRIGHT ARBITRATION ROYALTY PANEL RULES OF PROCEDURE 1. The authority citation for part 251 continues to read as follows: Authority: 17 U.S.C. 801-803. Subpart A--Organization 2. In section 251.2, paragraph (f) is added to read as follows: Sec. 251.2 Purpose of Copyright Arbitration Royalty Panels. * * * * * (f) To adjust royalty rates for the satellite carrier compulsory license in accordance with 17 U.S.C. 119(c). Sec. 251.3 [Amended] 3. Section 251.3(a) is amended by removing ``, on or before May 6, 1994, and before January 1 of each year thereafter,'' and adding ``before January 1 of each year''. 3a. Section 251.3(b) is amended by removing ``After May 6, 1994, and after January 1, of each year thereafter,'' and adding ``After January 1 of each year,''. Sec. 251.4 [Amended] 4. Section 251.4(a) is amended by removing ``30-day period specified in Sec. 251.63'' and adding ``45-day period specified in Sec. 251.45(b)(2)(i)''. 4a. Section 251.4(b) is amended by removing ``30-day time period specified in Sec. 251.45(a)'' and adding ``45-day period specified in Sec. 251.45(b)(1)(i)''. Subpart B--Public Access to Copyright Arbitration Royalty Panel Meetings 5. In Sec. 251.11, paragraph (b) is amended by revising the second sentence to read as follows: Sec. 251.11 Open meetings. * * * * * (b) * * * Such announcement shall state the times, dates, and place of the meetings, the testimony to be heard, whether any of the meetings, or any portion of a meeting, is to be closed, and, if so, which ones, and the name and telephone number of the person to contact for further information. * * * * * 6. In Sec. 251.13, the introductory text is revised to read as follows: Sec. 251.13 Closed Meetings. In the following circumstances, a Copyright Arbitration Royalty Panel may close meetings, or any portion of a meeting, or withhold information from the public: * * * * * 7. In Sec. 251.14, paragraph (d) is added to read as follows: Sec. 251.14 Procedure for closed meetings. * * * * * (d) The procedure for closed meetings in this section and in Sec. 251.15 shall not apply to the internal deliberations of arbitrators carried out in furtherance of their duties and obligations under this chapter. Subpart C--Public Access to and Inspection of Records Sec. 251.22 [Amended] 8. Section 251.22(c) is amended by removing ``$0.40 per page'' and adding ``the applicable Office charge''. Subpart D--Standards of Conduct 9. Section 251.31 is amended by revising paragraph (d) to read as follows: Sec. 251.31 Financial interests. * * * * * (d) For the purposes of this section, the financial interests of the following persons will serve to disqualify the selected arbitrator to the same extent as if they were the arbitrator's own interests: (1) The arbitrator's spouse; (2) The arbitrator's minor child; (3) The arbitrator's general partner, except that the personal financial holdings, including stock and bond investments, of such partner will not serve to disqualify the selected arbitrator; or (4) An organization or entity for which the arbitrator serves as officer, director, trustee, general partner or employee. 10. Section 251.32 is amended by revising paragraph (b) to read as follows: Sec. 251.32 Financial disclosure statement. * * * * * (b) If any conflicts do exist, the Librarian shall not choose that person for the proceeding for which he or she has the financial conflict, except-- (1) The listed arbitrator may divest himself or herself of the interest that caused the disqualification, and become qualified to serve; or (2) The listed arbitrator may offer to disclose on the record the conflict of interest causing disqualification. In such instances: (i) The Librarian shall publish a list detailing the conflicts of interest the listed arbitrators have offered to disclose, and any other matters which, although outside of the scope of the restrictions of Sec. 251.31, nevertheless, in the view of the Librarian, raise sufficient concerns to warrant disclosure to the affected parties; (ii) Such list shall be published in the order establishing the period for precontroversy motions (see, Sec. 251.45(b)); (iii) Such list shall contain the matters of concern, but shall not contain the names of the listed arbitrators. (iv) Any party to the proceeding for which the listed arbitrator is being considered may interpose within the 45-day period described in Sec. 251.45(b) an objection to that arbitrator being selected. If the objection is raised to a matter found to be within the scope of Sec. 251.31, the objection will serve automatically to disqualify the arbitrator. If the objection is raised to a matter found to be outside the scope of Sec. 251.31, the objection will be taken into account when the Librarian makes his or her selection, but will not serve automatically to disqualify the arbitrator. * * * * * 11. Section 251.33(b) is revised to read as follows: Sec. 251.33 Ex parte communications. * * * * * (b) Selected arbitrators. No interested person shall engage in, or cause someone else to engage in, ex parte communications with the selected arbitrators in a proceeding for any reason whatsoever from the time of their selection to the time of the submission of their report to the Librarian, and, in the case of a remand, from the time of their reconvening to the time of their submission of their report to the Librarian. Incidental communications unrelated to any proceeding, such as an exchange of pleasantries, shall not be deemed to constitute an ex parte communication. * * * * * Sec. 251.33 [Amended] 12. Section 251.33(c) is amended by removing ``party'' and adding ``person''. Subpart E--Procedures of Copyright Arbitration Royalty Panels 13. In Sec. 251.41, paragraph (b) is revised to read as follows: Sec. 251.41 Formal hearings. * * * * * (b) During the 45-day period specified in Sec. 251.45(b)(1)(i) for distribution proceedings, or during the 45-day period specified in Sec. 251.45(b)(2)(i) for rate adjustment proceedings, as appropriate, any party may petition the Librarian of Congress to dispense with formal hearings, and have the CARP decide the controversy or rate adjustment on the basis of written pleadings. The petition may be granted if-- (1) The controversy or rate adjustment, as appropriate, does not involve any genuine issue of material fact; or (2) All parties to the proceeding agree, in writing, that a grant of the petition is appropriate. 14. In Sec. 251.43, paragraph (a) is revised to read as follows: Sec. 251.43 Written cases. (a) All parties who have filed a notice of intent to participate in the hearing shall file written direct cases with the Copyright Arbitration Royalty Panel, and with other parties in the manner in which the Librarian of Congress shall direct in accordance with Sec. 251.45(b). * * * * * 15. Section 251.45 is amended by revising the section heading and paragraphs (a)-(c) to read as follows: Sec. 251.45 Discovery and prehearing motions. (a) Request for comment, notice of intention to participate. In the case of a royalty fee distribution proceeding, the Librarian of Congress shall, after the time period for filing claims, publish in the Federal Register a notice requesting each claimant on the claimant list to negotiate with each other a settlement of their differences, and to comment by a date certain as to the existence of controversies with respect to the royalty funds described in the notice. Such notice shall also establish a date certain by which parties wishing to participate in the proceeding must file with the Librarian a notice of intention to participate. In the case of a rate adjustment proceeding, the Librarian of Congress shall, after receiving a petition for rate adjustment filed under Sec. 251.62, or, in the case of noncommercial educational broadcasting and satellite carrier, prior to the commencement of proceedings, publish in the Federal Register a notice requesting interested parties to comment on the petition for rate adjustment. Such notice shall also establish a date certain by which parties wishing to participate in the proceeding must file with the Librarian a notice of intention to participate. (b) Precontroversy discovery, filing of written cases, scheduling. (1)(i) In the case of a royalty fee distribution proceeding, the Librarian of Congress shall, after the filing of comments and notices described in paragraph (a) of this section, designate a 45-day period for precontroversy discovery and exchange of documents. The period will begin with the exchange of written direct cases among the parties to the proceeding. Each party to the proceeding must serve a complete copy of its written direct case on each of the parties to the proceeding no later than the first day of the 45-day period. At any time during the 45-day period, parties to the proceeding may file with the Librarian prehearing motions and objections, including petitions to dispense with formal hearings under Sec. 251.41(b), and objections to arbitrators appearing on the arbitrator list under Sec. 251.4. Replies to motions, petitions, and objections must be filed with the Librarian seven days from the filing of such motions, petitions, and objections with the Librarian. (ii) Subject to Sec. 251.72, the Librarian shall establish, prior to the commencement of the 45-day period, the date on which arbitration proceedings will be initiated. (2) (i) In the case of a rate adjustment proceeding, the Librarian of Congress shall, after the filing of comments and notices described in paragraph (a) of this section, designate a 45-day period for precontroversy discovery and exchange of documents. The period will begin with the exchange of written direct cases among the parties to the proceeding. Each party to the proceeding must serve a complete copy of its written direct case on each of the parties to the proceeding no later than the first day of the 45-day period. At any time during the 45-day period, parties to the proceeding may file with the Librarian prehearing motions and objections, including petitions to dispense with formal hearings under Sec. 251.41(b), and objections to arbitrators appearing on the arbitrator list under Sec. 251.4. Replies to motions, petitions and objections must be filed with the Librarian seven days from the filing of such motions, petitions, and objections with the Librarian. (ii) Subject to Sec. 251.64, the Librarian shall establish, prior to the commencement of the 45-day period, the date on which arbitration proceedings will be initiated. (c) Discovery and motions filed with a Copyright Arbitration Royalty Panel. (1) A Copyright Arbitration Royalty Panel shall designate a period following the filing of written direct and rebuttal cases with it in which parties may request of an opposing party nonprivileged underlying documents related to the written exhibits and testimony. (2) After the filing of written cases with a CARP, any party may file with a CARP objections to any portion of another party's written case on any proper ground including, without limitation, relevance, competency, and failure to provide underlying documents. If an objection is apparent from the face of a written case, that objection must be raised or the party may thereafter be precluded from raising such an objection. * * * * * Sec. 251.47 [Amended] 15. Section 251.47(l) is amended by removing ``for them'' and adding ``of any given witness'' after the word ``cross-examination'' each place it appears. 16. Section 251.51 is amended by revising the section heading to read as follows: Sec. 251.51 Closing the record. * * * * * Sec. 251.52 [Amended] 17. Section 251.52(c) is amended by removing ``an applicant'' in the third sentence and adding ``a party''. Sec. 251.53 [Amended] 18. Section 251.53(a) is amended by adding ``and any replies thereto'' after ``conclusions of law'' in the first sentence. Sec. 251.54 [Amended] 19. Section 251.54(a) is amended by removing ``After the submission of the panel's report to the Librarian of Congress, the'' and adding ``The''. 20. In section 251.54(c), the third sentence is removed. Subpart F--Rate Adjustment Proceedings 21. In section 251.60, the first sentence is revised to read as follows: Sec. 251.60 Scope. This subpart governs only those proceedings dealing with royalty rate adjustments affecting cable (17 U.S.C. 111), the production of phonorecords (17 U.S.C. 115), performances on coin-operated phonorecord players (jukeboxes) (17 U.S.C. 116), noncommercial educational broadcasting (17 U.S.C. 118) and satellite carriers (17 U.S.C. 119). * * *. 22. In section 251.61, paragraph (d) is added to read as follows: Sec. 251.61 Commencement of adjustment proceedings. * * * * * (d) In the case of the satellite carrier compulsory license, rate adjustment proceedings shall commence on January 1, 1997, in accordance with 17 U.S.C. 119(c)(3)(A), for satellite carriers who are not parties to a voluntary agreement filed with the Copyright Office in accordance with 17 U.S.C. 119(c)(2). 23. Section 251.63 is revised to read as follows: Sec. 251.63 Consideration of petition; settlements. (a) To allow time for the parties to settle their differences regarding rate adjustments, the Librarian of Congress shall, after the filing of a petition under Sec. 251.62 and before the 45-day period specified in Sec. 251.45(b)(2)(i), designate a 30-day period for consideration of their settlement. The Librarian shall cause notice of the dates for that period to be published in the Federal Register. (b) In the case of a settlement among the parties to a proceeding, the Librarian may, upon the request of the parties, submit the agreed upon rate to the public in a notice-and-comment proceeding. The Librarian may adopt the rate embodied in the proposed settlement without convening an arbitration panel, provided that no opposing comment is received by the Librarian from a party with an intent to participate in a CARP proceeding. 24. In Sec. 251.64, the first sentence and third sentences are revised to read as follows: Sec. 251.64 Disposition of petition; initiation of arbitration proceeding. After the end of the 45-day precontroversy discovery period, and after the Librarian has ruled on all motions and objections filed under Sec. 251.45, the Librarian will determine the sufficiency of the petition, including, where appropriate, whether one or more of the petitioners' interests are ``significant.'' * * * The same declaration and notice of initiation shall be made for noncommercial educational broadcasting and the satellite carrier compulsory license in accordance with 17 U.S.C. 118 and 119, respectively. * * * 25. Section 251.65 is revised to read as follows: Sec. 251.65 Deduction of costs of rate adjustment proceedings. In accordance with 17 U.S.C. 802(h)(1), the Librarian of Congress and the Register of Copyrights may assess the reasonable costs incurred by the Library of Congress and the Copyright Office as a result of the rate adjustment proceedings directly to the parties participating in the proceedings. Sec. 3251.7 [Removed] Secs. 251.73 and 251.74 [Redesignated as Secs. 251.72 and 251.73] 26. Section 251.72 is removed and Secs. 251.73 and 251.74 are redesignated as Secs. 251.72 and 251.73. PART 252--FILING OF CLAIMS TO CABLE ROYALTY FEES 27. The authority citation for part 252 continues to read as follows: Authority: 17 U.S.C. 111(d)(4), 801, 803. 28. Section 252.3(a)(3) and (4) are revised, and paragraph (d) is removed as follows: Sec. 252.3 Content of claims. (a) * * * (3) If the claim is a joint claim, a concise statement of the authorization for the filing of the joint claim, and the name of each claimant to the joint claim. For this purpose, a performing rights society shall not be required to obtain from its members or affiliates separate authorizations, apart from their standard membership affiliate agreements, or to list the name of each of its members or affiliates in the joint claim. (4) For individual claims, a general statement of the nature of the claimant's copyrighted works and identification of at least one secondary transmission by a cable system of such works establishing a basis for the claim. For joint claims, a general statement of the nature of the joint claimants' copyrighted works and identification of at least one secondary transmission of one of the joint claimants' copyrighted works by a cable system establishing a basis for the joint claim. * * * * * 29. Section 252.4(a) and (e) are revised to read as follows: Sec. 252.4 Compliance with statutory dates. (a) Claims filed with the Copyright Office shall be considered timely filed only if: (1) They are hand delivered, either by the claimant, the claimant's agent, or a private delivery carrier, to: Office of the Register of Copyrights, Room 403, James Madison Memorial Building, 101 Independence Avenue, SE., Washington, DC 20540, during normal business hours during the month of July; or (2) They are addressed to: Copyright Arbitration Royalty Panel, P.O. Box 70977, Southwest Station, Washington, DC 20024, and are deposited with sufficient postage with the United States Postal Service and bear a July U.S. postmark. * * * * * (e) In the event that a properly addressed and mailed claim is not timely received by the Copyright Office, a claimant may nonetheless prove that the claim was properly mailed if it was sent by certified mail return receipt requested, and the claimant can provide the receipt showing that it was properly mailed or timely received. No affidavit of an officer or employee of the claimant, or of a U.S. postal worker will be accepted as proof in lieu of the receipt. PART 253--USE OF CERTAIN COPYRIGHTED WORKS IN CONNECTION WITH NONCOMMERCIAL EDUCATIONAL BROADCASTING 30. The authority citation for part 253 continues to read as follows: Authority: 17 U.S.C. 118, 801(b)(1) and 803. Sec. 253.10 [Amended] 31. Section 253.10 is amended by removing ``Copyright Office'' each place it appears and adding ``Librarian of Congress''. PART 257--FILING OF CLAIMS TO SATELLITE CARRIER ROYALTY FEES 32. The authority citation for part 257 continues to read as follows: Authority: 17 U.S.C. 119(b)(4). 33. Section 257.3(a) (3) and (4) are revised, and paragraph (d) is removed as follows: Sec. 257.3 Content of claims. (a) * * * (3) If the claim is a joint claim, a concise statement of the authorization of the filing of the joint claim, and the name of each claimant to the joint claim. For this purpose, a performing rights society shall not be required to obtain from its members or affiliates separate authorizations, apart from their standard membership or affiliate agreements, or to list the name of each of its members or affiliates in the joint claim. (4) For individual claims, a general statement of the nature of the claimant's copyrighted works and identification of at least one secondary transmission by a satellite carrier of such works establishing a basis for the claim. For joint claims, a general statement of the nature of the joint claimants' copyrighted works and identification of at least one secondary transmission of one of the joint claimants' copyrighted works by a satellite carrier establishing a basis for the joint claim. * * * * * 34. Section 257.4 (a) and (e) are revised to read as follows: Sec. 257.4 Compliance with statutory dates. (a) Claims filed with the Copyright Office shall be considered timely filed only if: (1) They are hand delivered, either by the claimant, the claimant's agent, or a private delivery carrier, to: Office of the Register of Copyrights, Room 403, James Madison Memorial Building, 101 Independence Avenue, SE., Washington, DC 20540, during normal business hours during the month of July; or (2) They are addressed to: Copyright Arbitration Royalty Panel, P.O. Box 70977, Southwest Station, Washington, DC 20024, and are deposited with sufficient postage with the United States Postal Service and bear a July U.S. postmark. * * * * * (e) In the event that a properly addressed and mailed claim is not timely received by the Copyright Office, a claimant may nonetheless prove that the claim was properly mailed if it was sent by certified mail return receipt requested, and the claimant can provide the receipt showing that it was properly mailed or timely received. No affidavit of an officer or employee of the claimant, or of a U.S. postal worker will be accepted as proof in lieu of the receipt. PART 259--FILING OF CLAIMS TO DIGITAL AUDIO RECORDING DEVICES AND MEDIA ROYALTY PAYMENTS 35. The authority citation for part 259 continues to read as follows: Authority: 17 U.S.C. 1007(a)(1). 36. In Section 259.3, paragraph (d) is revised, and paragraph (f) is removed as follows: Sec. 259.3 Content of claims. * * * * * (d) If the claim is a joint claim, a concise statement of the authorization for the filing of the joint claim, and the name of each claimant to the joint claim. * * * * * 37. Sections 259.5 (a) and (e) are revised to read as follows: Sec. 259.5 Compliance with statutory dates. (a) Claims filed with the Copyright Office shall be considered timely filed only if: (1) They are hand delivered, either by the claimant, the claimant's agent, or a private delivery carrier, to: Office of the Register of Copyrights, Room 403, James Madison Memorial Building, 101 Independence Avenue SE., Washington, DC 20540, during normal business hours during the month of January or February; or (2) They are addressed to: Copyright Arbitration Royalty Panel, P.O. Box 70977, Southwest Station, Washington, DC 20024, and are deposited with sufficient postage with the United States Postal Service and bear a January or February U.S. postmark. * * * * * (e) In the event that a properly addressed and mailed claim is not timely received by the Copyright Office, a claimant may nonetheless prove that the claim was properly mailed if it was sent by certified mail return receipt requested, and the claimant can provide the receipt showing that it was properly mailed or timely received. No affidavit of an officer or employee of the claimant, or of a postal worker will be accepted as proof in lieu of the receipt. Dated: November 29, 1994. Marybeth Peters, Register of Copyrights. Approved by: James H. Billington, The Librarian of Congress. [FR Doc. 94-30045 Filed 12-6-94; 8:45 am] BILLING CODE 1410-33-P