Propertizing Fair Use

In its current form, fair use doctrine provides a personal defense that applies narrowly to the specific use by the specific user. The recently issued Supreme Court ruling in the landmark case of Google v. Oracle illustrates why this is problematic. While the Court ruled that Google’s use of Oracle’s Java API packages was fair, the ruling does not protect the numerous parties that developed Java applications for the Android operating system; it shelters only Google and Google’s particular use. This is not an isolated problem; the per use/per user rule cuts across fair uses of copyrighted works, and it always leaves follow-on users in the cold. Authors, musicians, documentary filmmakers and media outlets who win fair use cases cannot freely market their works that incorporate fair use content, since their victories do not carry over to other users. Fair use under extant law is a very limited privilege.

This Article proposes a far-reaching reform not only of copyright law as applied to software, but of the fair use doctrine itself. Our proposal consists of three interlocking elements. First, we call for the introduction of a new in rem conception of fair use, under which a fair use ruling would serve as a property remedy that shelters all subsequent users of works who fairly incorporate preexisting materials. Under this new conception, a finding of fair use would run with that new work, like an easement to all other distributors, broadcasters, publishers, performers and others who use it. The introduction of this new type of in rem fair use would result in the division of fair use into two conceptions—one in rem and one in personam—that would co-exist alongside one another. Second, we would grant judges discretion to decide which fair use conception, if any, should be granted in any particular case. Judges would be able to employ the traditional in personam rule, allowing fair use to avail only the specific defendant before it, or they could adopt an in rem fair use ruling, creating a property entitlement that runs with the work embodying the fairly incorporated content. Third, we propose two default rules to assist judges in making their decisions. Specifically, we propose that the default setting of fair use would depend on the type of use being examined. Where the claimed fair use consists of incorporating the protected copyrighted material in a new copyrighted work—such as the Android operating system—the default fair use would be of the in rem variety. However, in all other cases of claimed fair use, the traditional, familiar in personam conception would be the default setting. This approach would create clarity about the status of follow-on fair uses, but permit judges to tailor their rulings case by case.

Implementation of our proposal would yield several significant improvements to the current fair use doctrine. It would permit judges to take account of the potential for future uses of the fair use work, without handcuffing them to a single approach. Moreover, it would increase certainty with respect to the use of copyrighted work by lowering transaction and litigation costs for creators of new works. Finally, the version of fair use we advocate would enhance the use of copyrighted content.

Introduction

Fair use is one of the most celebrated doctrines in the law.1.See generally Wendy J. Gordon, Fair Use as Market Failure: A Structural and Economic Analysis of the Betamax Case and Its Predecessors, 82 Colum. L. Rev. 1600, 1601 (1982) (unearthing the “structural and economic” considerations in fair use); Wendy J. Gordon & Daniel Bahls, The Public’s Right to Fair Use: Amending Section 107 to Avoid the “Fared Use” Fallacy, 2007 Utah L. Rev. 619, 620 (arguing for the continued use of fair use, in light of its critics); William W. Fisher III, Reconstructing the Fair Use Doctrine, 101 Harv. L. Rev. 1659, 1661 (1988) (criticizing fair use and suggesting reforms); Barton Beebe, An Empirical Study of U.S. Copyright Fair Use Opinions, 1978-2005, 156 U. Penn. L. Rev. 549 (2008) (measuring outcomes of fair use cases historically); Pamela Samuelson, Unbundling Fair Uses, 77 Fordham L. Rev. 2537 (2009) (suggesting a typology of fair use cases based on their policy implications); Pamela Samuelson, Possible Futures of Fair Use, 90 Wash. L. Rev. 815 (2015) (predicting that fair use will survive in spite of critiques and continue to evolve); Rebecca Tushnet, Copy This Essay: How Fair Use Doctrine Harms Free Speech and How Copying Serves It, 114 Yale L.J. 535 (2004) (separating out fair use claims from free speech claims); Michael W. Carroll, Fixing Fair Use, 85 N.C. L. Rev. 1087 (2007) (proposing reforms to fair use in light of its alleged abuses); Matthew Sag, Predicting Fair Use, 73 Ohio St. L.J. 47 (2011) (using empirical methodology to argue that fair use outcomes are more consistent and predictable than they might otherwise be assumed); Jeanne C. Fromer, Market Effects Bearing on Fair Use, 90 Wash. L. Rev. 615 (2015) (exploring the harms and benefits of fair use on markets); Abraham Bell & Gideon Parchomovsky, The Dual-Grant Theory of Fair Use, 83 U. Chi. L. Rev. 1051, 1053 (2016) [hereinafter The Dual-Grant Theory of Fair Use] (“Fair use is a keystone of the law of copyright . . . .”); Pierre N. Leval, Toward a Fair Use Standard, 103 Harv. L. Rev. 1105, 1110 (1990) (“[T]he function of fair use [is] integral to copyright’s objectives . . . .”).Show More It is widely seen as a key component of the law of copyright, balancing the exclusive rights of copyright owners with the public interest in the use and enjoyment of works after their creation.2.Stephen McIntyre, Private Rights and Public Wrongs: Fair Use as a Remedy for Private Censorship, 48 Gonz. L. Rev. 61, 64 (2012) (“The ‘fair use’ doctrine . . . balances copyright holders’ rights against the public’s interests in free speech and the dissemination of knowledge, information, and culture.”); Niva Elkin-Koren & Orit Fischman-Afori, Rulifying Fair Use, 59 Ariz. L. Rev. 161, 199 (2017) (“Fair use was first crafted as a legal standard . . . intending to allow courts to reconcile the copyright of authors with the public interest.”).Show More It is not only the most significant and most capacious defense against copyright infringement;3.See The Dual-Grant Theory of Fair Use, supra note 1, at 1053 (“The fair use defense to copyright infringement is perhaps the most frequently raised and litigated defense in the law of intellectual property.”); Carroll, supra note 1, at 1089 (“Fair use is the first and most general of these limitations.”). Unlike other defenses that apply to infringements of specific rights, such as reproduction, public performance, and public display, fair use offers protection against all violations of all rights.Show More it is also, according to the Supreme Court, an indispensable part of the constitutional balance between freedom of speech and protected copyrighted expression.4.Golan v. Holder, 565 U.S. 302, 328 (2012); Eldredv.Ashcroft, 537 U.S. 186, 219–20 (2003) (describing fair use as a “built-in First Amendment accommodation[]”); Harper & Row, Publishers, Inc. v. Nation Enters., 471 U.S. 539, 560 (1985) (“In view of the First Amendment protections already embodied in the Copyright Act’s distinction between copyrightable expression and uncopyrightable facts and ideas, and the latitude for scholarship and comment traditionally afforded by fair use, we see no warrant for expanding the doctrine of fair use to create what amounts to a public figure exception to copyright.”).Show More Unsurprisingly, the fair use doctrine has attracted considerable academic attention and has been the subject of discussion and debate.5.See generally sources supra note 1 (delineating several aspects of fair use discussion).Show More Yet a critical aspect of the doctrine, which goes to the core of the fair use doctrine, has not been analyzed to date.

There is a sharp asymmetry between the design of the exclusive rights granted to authors under the Copyright Act and the design of the fair use defense intended to protect user interests. The asymmetry is found in copyright’s protection of works, as opposed to fair use’s protection of uses. Copyright protects a list of rights in a particular work allocated to the owner of the copyright,6.Compare 17 U.S.C. § 106 (2018) (“[T]he owner of copyright under this title has the exclusive rights to do and to authorize any of the following . . . .”), with 17 U.S.C. § 107 (2018) (“[T]he fair use of a copyrighted work . . . is not an infringement of copyright.”).Show More whereas the fair use defense only pertains to a specific use by a particular user.7.Julie E. Cohen, The Place of the User in Copyright Law, 74 Fordham L. Rev. 347, 362 (2005) (“In most fair use cases, the identity of the user is known, the use has already been made, and the only question is whether or not it passes muster.”).Show More Put differently, fair use is an agent-specific defense that is analyzed on a use-by-use basis. The fair use defense does not and cannot offer prophylactic immunity for using the work; it does not carry over to similar uses by the same user or identical uses by other users. As a result, the doctrine of fair use is far narrower than is generally appreciated.

To see why this is a problem, consider the Supreme Court’s recent ruling in Google LLC v. Oracle America, Inc.8.Google LLC v. Oracle Am., Inc., 141 S. Ct. 1183 (2021). For an important analysis of the Oracle v. Google litigation prior to the Supreme Court’s ruling, see generally Peter S. Menell, API Copyrightability Bleak House: Unraveling and Repairing the Oracle v. Google Jurisdictional Mess, 31 Berkeley Tech. L.J. 1515 (2016).Show More The case concerned Google’s copying of thirty-seven packages, comprising roughly 11,500 lines of code, in Java’s Application Programming Interface for use in the programs used by Android phones.9.Oracle, 141 S. Ct. at 1204.Show More (Application Programming Interfaces, or APIs, can be defined for simplicity’s sake as code orders that enable interfaces between programs.)10 10.SeeUnited States v. Microsoft Corp, 253 F.3d 34, 53 (D.C. Cir. 2001) (“Operating systems also function as platforms for software applications. They do this by ‘exposing’ . . . routines or protocols that perform certain widely-used functions. These are known as Application Programming Interfaces, or ‘APIs.’”).Show More Oracle claimed that Google violated its copyright in the API and the Java commands contained therein.11 11.Oracle, 141 S. Ct. at 1194.Show More In its defense, Google claimed that the commands were insufficiently original to warrant copyright protection,12 12.See id.Show More and that even if the commands were sufficiently original, other doctrines blocked copyright protection.13 13.See id.Show More The trial court held for Google, finding that the commands were insufficiently original and generally outside of copyright protection.14 14.Id.Show More However, the Federal Circuit Court of Appeals reversed, determining that Java’s API is copyrighted, and remanded the case to the trial court for examination of Google’s fair use defense.15 15.Id. at 1194–95.Show More Back in the trial court, Google claimed that its use of the Java commands in the programming language for Android phones was a fair use,16 16.Id. at 1195.Show More and again Google won at the trial level.17 17.Id.Show More Once more, the Federal Circuit Court of Appeals reversed the jury decision and ordered the trial court to proceed to the remedies phase.18 18.Id.Show More Before the trial court could take up the question of remedies, the Supreme Court granted certiorari and reversed the Federal Circuit Court of Appeal’s decision. The Supreme Court held that Google’s copying of the API was a protected fair use, while assuming arguendo that the API was copyrightable.19 19.Id. at 1186.Show More

In ruling that Google’s copying of thirty-seven Java packages from Oracle’s API was a fair use, the Court cleared the way for Google to continue using the copied Oracle software. However, the Court did not consider whether programmers for Android phones could use Google’s software, even though such programmers would thereby necessarily copy, in part, Oracle’s software.20 20.SeeHorace G. Ball, The Law of Copyright and Literary Property 260 (1944) (“Fair use is technically an infringement of copyright, but is allowed by law on the ground that the appropriation is reasonable and customary.”); Ned Snow, The Forgotten Right of Fair Use, 62 Case W. Res. L. Rev. 135, 141 (2011) (“Fair use now represents an excuse to justify infringement, or in other words, an exception to the norm of speech suppression through copyright.”).Show More Importantly, as the Court noted, all fair use rulings are case by case.21 21.Oracle, 141 S. Ct. at 1198.Show More Other companies that duplicated part of the thirty-seven packages that Google had copied in order to program for the Android phone could not be sure that their use of the Java commands would be considered a fair use. The fair use approved by the Supreme Court is Google’s use, not that of any other user. Indeed, even Google could not be sure that any future Google use of Oracle’s API would be permitted. Google can only be confident that the particular uses considered in the case were fair uses; any other use of the Java commands in a different program or use of different commands in the Java API in the same program would potentially be vulnerable to an infringement suit.

A similar problem arises in other contexts, from music to literature. 2 Live Crew famously won a Supreme Court victory in Campbell v. Acuff-Rose Music, Inc. on a claim of fair use, allowing it to continue to use portions of the melody of Roy Orbison’s song “Oh Pretty Woman” in its parody “Pretty Woman.”22 22.510 U.S. 569, 571–72 (1994).Show More However, a different user who wishes to use 2 Live Crew’s song in another context—for example, by incorporating it as background music in a film or performing the song at a high school dance—is barred from doing so, even if she were to secure permission from 2 Live Crew.23 23.The industry practice for obtaining licenses for musical performance is sufficiently well-developed and complex that the would-be user would likely be able to obtain the relevant licenses without direct communication with either Campbell (who owns the rights to 2 Live Crew’s song) or Acuff-Rose (who owns the rights to Orbison’s). For purposes of our example, we ignore the industry practice.Show More The Supreme Court’s ruling that 2 Live Crew’s use is fair does not mean that the subsequent use would be deemed fair too. Similarly, if a screenwriter wanted to produce a movie based on Alice Randall’s book, The Wind Done Gone, and she properly purchased rights from Alice Randall, she would not be readily able to embark upon this task. Although Alice Randall’s use of Margaret Mitchell’s Gone with the Wind was ruled to be fair,24 24.See Suntrust Bank v. Houghton Mifflin Co., 268 F.3d 1257, 1277 (11th Cir. 2001) (concluding that “a viable fair use defense is available” for The Wind Done Gone’s potential infringement of Suntrust’s copyright in Gone with the Wind).Show More every subsequent user of her work would be exposed to an infringement claim, unless she secured a license from the owners of Gone with the Wind who, as one may recall, refused to license Alice Randall’s use. Fair use findings are in personam; they only pertain to a specific user. Copyright protection, by contrast, is in rem; it avails against the rest of the world.25 25.SeeAbraham Bell & Gideon Parchomovsky, Reconfiguring Property in Three Dimensions, 75 U. Chi. L. Rev. 1015, 1032 (2008)(“[P]roperty rights, as defined by the government, are rights in rem, which avail against the world . . . .”);Guy Pessach, Toward A New Jurisprudence of Copyright Exemptions, 55 Intell. Prop. L. Rev. 287, 291 (2015) (“Copyright owners’ entitlements are in rem exclusive property rights . . . owners have the right to exclude the rest of the world from utilizing their copyrighted works for uses that fall within their bundle of exclusive uses.”).Show More This creates a vast amount of uncertainty.

In this Article, we propose a dramatic reformation of the fair use doctrine, consisting of three complementary steps. First, we introduce a new conception of fair use, under which fair use could constitute an in rem, property remedy. This new conception of fair use would supplement, rather than supplant, the existing fair use doctrine. Under the new in rem property conception, a fair use finding would assist not only the particular defendant who raised the fair use defense but also all subsequent users of a work that had been found to fairly incorporate copyright content. Thus, the in rem version of fair use would take on the form of a property incident that benefits all future users, and it would therefore enhance the marketability of follow-on works employing the fair use.

Second, we would grant courts the power to decide which conception of fair use, if any, to adopt in each case. Upon a finding of fair use, the judge could adopt either the traditional in personam version or our new in rem version of fair use. Judges would not be required to adopt the in rem version of fair use in every case. In appropriate circumstances, the judge could stick to the traditional approach to fair use, limiting it to the specific user and the specific use. The upshot of our proposal would be a legal menu with three options: denying fair use, finding an in personam fair use, or finding an in rem fair use.

Third, we propose a set of default rules for all fair use cases. Where judges choose not to specify whether their finding of fair use is of the in personam or in rem variety, we propose that default rules make that decision. However, the default setting of fair use would depend on the type of use being examined. Specifically, where the claimed fair use consists of incorporating the protected copyrighted material in a new copyrighted work—such as the Android operating system, or the “Pretty Woman” song—the default fair use would be of the in rem variety. In such cases, if the judge failed to specify otherwise, future users of the fair use follow-on work could utilize that work without having to relitigate the issue of infringement with the owner of the original copyrighted work. However, in all other cases of claimed fair use, the traditional, familiar in personam conception of fair use would be the default setting. This set of default rules would create clarity about the status of follow-on fair uses, but permit judges to tailor their rulings case by case.

We propose that the result of a successful invocation of an in rem fair use defense should create effects like those in the world of property. Under our suggested interpretation, where the judge chooses the in rem variety of fair use, a fair use ruling in favor of any particular user would continue to run with the work for the benefit of subsequent users with respect to the relevant content covered by the ruling. Specifically, any unlicensed incorporation of copyrighted material that was ruled a fair use would be seen as creating a permanent copyright defense that runs with the work, akin to a property easement. Were a court to rule that a particular user made fair use of a preexisting work, subsequent users of the follow-on work that was found to fairly use preexisting material would also be protected by the ruling. These subsequent users could utilize the preexisting material in the follow-on work with assurance that their use too would be deemed fair. For example, if Google’s use of Oracle’s Java APIs were not merely a fair use but an in rem fair use, not just Google but every programmer for Android phones who uses Google’s Android system will be sheltered from liability, even though Android incorporates 11,500 lines of code from Oracle’s API.26 26.Perhaps due to the litigation, Google ultimately abandoned use of Oracle’s Java API, and later versions of Android did not involve any copying of Oracle’s copyrighted work. Oracle, 141 S. Ct. at 1191. Our comments relate to early versions of Android that still incorporated Oracle’s work. An early ruling in favor of in rem fair use for Google might have left parts of Oracle’s API in the Android program.Show More

Our proposal has three significant advantages relative to extant fair use doctrine. First, our proposal would increase certainty with respect to the use of copyrighted work. Currently, a fair use finding only helps the named defendants in the case. It does not pertain to other users who wish to make the same use of the copyrighted work. Under current law, other users either have to take their chances in court or negotiate a license from the owner.27 27.See James Gibson, Risk Aversion and Rights Accretion in Intellectual Property Law, 116 Yale L.J. 882, 890 (2007) (stating that since the fair use doctrine is ambiguous and the cost of losing an infringement case is prohibitively high, “even a risk-neutral actor with a good fair use claim would choose to secure a license rather than take the small risk of incurring a severe penalty”).Show More The adoption of our proposal would allow judges in fair use cases to put other potential users on solid ground by allowing them to engage in the same use that was ruled fair. At the same time, our approach would permit tailoring remedies to the needs of the fair use. Judges could take account of the potential for future uses of the fair use work, and deny future in rem employment of a fair use remedy, when appropriate. The default settings of fair use would create clarity about the meaning of fair use decisions in any particular case where the judge chose not to elaborate.

Second, our proposal would potentially lower transaction and litigation costs for creators of new works.28 28.For discussion, see infraSection I.B.Show More As we explained, current doctrine requires users of works that fairly incorporate materials from preexisting works to negotiate licenses from both the original owner and the fair user or plead their own new fair use in court. Both options are costly. Our proposal potentially alleviates this burden, conserving judicial resources while lowering costs for the parties themselves.

Third, and finally, our proposal would increase the productive use of copyrighted content. The sheltering principle would enable multiple downstream users to create new works that incorporate past works that were found by courts to make fair uses of older works.

The remainder of the Article unfolds in four parts. In Part I, we explain the shortcomings of extant fair use doctrine, focusing on the inherent limitations arising from fair use’s understanding as a personal, use-specific defense to copyright infringement. In particular, we discuss the costs that current fair use jurisprudence imposes on follow-on creators. In Part II, we turn to the world of property, where one finds such doctrines as market overt and the law of easements, which promote the marketability of rights and give use rights an in rem character. In Part III, we draw on our discussion of property law to call for the introduction of a brand-new conception of fair use that would operate as a property incident, in the sense that it would benefit all subsequent users of a work that obtained a fair use status. Finally, in Part IV, we provide an important context for our amended understanding of fair use by showing that other parts of the law of copyright that struggle with similar problems have employed mechanisms that bear a great deal of resemblance to our proposal.