For other versions of this document, see http://wikileaks.org/wiki/CRS-RL33922 ------------------------------------------------------------------------------ ¢ ¢ ¢ ¢ Prepared for Members and Committees of Congress ¢ ¢ As new technologies have changed the ways in which copyrighted musical works and sound recordings may be reproduced, distributed, and publicly performed, copyright owners, broadcasters, and music vendors have become increasingly concerned that the various compulsory licenses applicable to sound recordings result in different treatment for entities offering similar services. S. 256, the Platform Equality and Remedies for Rights Holders in Music Act of 2007 (the Perform Act), represents one legislative approach to resolving these concerns, at least as they apply to digital public performances of sound recordings. The Perform Act would amend 17 U.S.C. § 112 to require that webcasters pay copyright owners a compulsory license fee based on the fair market value of their works when making "ephemeral recordings." It would similarly change the terms under which transmission services obtain compulsory licenses for digital public performances of copyrighted sound recordings under 17 U.S.C. § 114(f) by (1) providing for compulsory licenses for all types of transmission services under the same statutory provision, (2) setting license fees for all types of transmission services based on the same three criteria, and (3) using the fair market value of the works licensed as the standard for determining all compulsory license fees. The Perform Act also strengthens the requirements of 17 U.S.C. § 114(d) to ensure that transmission services cannot rely on a compulsory license for digital public performance in order to distribute sound recordings to listeners. It further adds a concept of "reasonable recording" to 17 U.S.C. § 114(j), under which transmission services, in order to qualify for the compulsory public performance license, must employ technological measures to limit copying or recording by listeners. Finally, the Perform Act requires that the Register of Copyrights convene a meeting between owners of copyrighted sound recordings and transmitting services no later than 60 days after its enactment to discuss the creation of a new category for "limited interactive services" and set appropriate compulsory license fees for these services. ¢ Introduction ..................................................................................................................................... 1 Background ..................................................................................................................................... 1 Section 1: Short Title....................................................................................................................... 3 Section 2: Rate-Setting Standards ................................................................................................... 3 Section 112 Licenses................................................................................................................. 3 Section 114 Licenses................................................................................................................. 3 Content Protection..................................................................................................................... 5 Definition .................................................................................................................................. 6 Technical and Conforming Amendments .................................................................................. 6 Section 3: Register of Copyrights Meeting and Report................................................................... 7 ¡ Appendix. A Side-by-Side Comparison of the Current Statutory Language and the Changes That Would Be Made to It by the Perform Act.............................................................. 8 Author Contact Information .......................................................................................................... 15 ¢ S. 256, the Platform Equality and Remedies for Rights Holders in Music Act of 2007 (the Perform Act), introduced on January 11, 2007, by Senator Dianne Feinstein, seeks to promote parity in the music licensing fees paid by entities involved in the digital performance and distribution of copyrighted music. It would amend certain provisions of U.S. copyright law (17 U.S.C. §§ 112 and 114) to (1) subject all digital public performances of copyrighted sound recordings to compulsory licensing under the same statutory provision and standards, regardless of whether they are transmitted by preexisting or new, subscription, or non-subscription services; (2) require services that transmit digital public performances of copyrighted sound recordings under compulsory licenses to use technological measures to prevent the making of copies embodying the transmission of the sound recordings; and (3) use the fair market value of the copyrighted sound recordings in setting compulsory license fees for digital public performances of them. This report provides a section-by-section analysis of the Perform Act and the changes it would make to U.S. copyright law. Among the creative works that U.S. copyright law protects are sound recordings (material or digital embodiments of performances of musical works) and musical works (musical compositions consisting of musical notation and any accompanying words).1 Owners of copyrighted sound recordings have exclusive rights to reproduce, adapt, or distribute their works, or to perform them publicly by digital means.2 Normally, anyone who wants to exercise any of the copyright owner's exclusive rights must obtain the copyright owner's permission to do so, typically by negotiating a private licensing agreement.3 However, copyright law also provides several types of "compulsory licenses" for sound recordings. These licenses allow third parties who pay statutorily prescribed fees to use copyrighted sound recordings under certain conditions, without having to negotiate private licensing agreements.4 Among other things, compulsory licenses currently are available for "ephemeral recordings" (reproductions of sound recordings made by webcasters or radio stations to facilitate the "streaming" of their content on the Internet),5 as well as public performances of sound recordings by digital transmission services, such as webcasters and satellite digital audio radio services.6 1 17 U.S.C. §§ 102(a)(1) & (7). Cole Porter's song "I've Got You Under My Skin" is a musical work. A tape, compact disk, or MP3 of Frank Sinatra singing "I've Got You Under My Skin" is a sound recording. 2 17 U.S.C. §§ 106(1)-(3) & (6). The owners of copyrighted musical works, in contrast, have exclusive rights to publicly perform their works by any means, digital or non-digital. 17 U.S.C. § 106(4). As defined by the Copyright Act, public performance includes (1) performance at any place open to the public or where a "substantial number of persons outside of a normal circle of a family and its social acquaintances" gather, or (2) transmission or other communication to a public place or to the public by any device or process allowing members of the public to receive the performance as a group or individually. 17 U.S.C. § 101. 3 See CRS Report RL33631, Copyright Licensing in Music Distribution, Reproduction, and Public Performance, by Brian T. Yeh. 4 Id. 5 17 U.S.C. § 112(a)(1). Webcasters are radio stations that transmit their broadcasts through the Internet instead of, or in addition to, through radio waves transmitted by air. "Streaming" refers to the transmission of audio or video content via the Web in such a way that the content is viewable while it is being transmitted. 6 17 U.S.C. § 114. ¢ As new technologies have changed the ways in which copyrighted musical works and sound recordings may be reproduced, distributed, and publicly performed, copyright owners, broadcasters, and music vendors have become increasingly concerned that the various compulsory licenses applicable to sound recordings result in different and inequitable treatment for entities offering similar services. Webcasters object to paying compulsory license fees for "ephemeral" reproductions and public performances when terrestrial (AM/FM) radio stations do not.7 They also are concerned about paying more in compulsory license fees than existing satellite radio services, whose license fees are separately established based upon factors that recognize their infrastructure investments and seek to minimize disruption to their business models.8 Copyright owners worry that satellite digital services are impermissibly "stretching" the compulsory public performance license in order to distribute sound recordings because they have developed portable devices that allow users not only to record musical programming but also to save and re-sequence selected songs from such recordings.9 Satellite radio services, on the other hand, note that they face more expenses in transmitting public performances than webcasters do because they must purchase spectrum and launch satellites prior to transmitting music.10 They argue that listeners recording from satellite radio are no different than listeners recording from terrestrial radio and thus are covered by the Audio Home Recording Act (AHRA) (P.L. 102- 563).11 The Perform Act represents one legislative approach to resolving these concerns, at least as they apply to digital public performances of sound recordings. 7 Parity, Platforms, and Protection: The Future of the Music Industry in the Digital Radio Revolution: Hearing Before the Senate Comm. on the Judiciary [hereinafter Parity, Platforms], 109th Cong., 2nd Sess. (2006) (statement of N. Mark Lam, Chairman and CEO of Live365, Inc.) (noting that a terrestrial radio station with the same sized audience as Live365 pays 3.5% of its revenue for use of copyrighted musical works and nothing for use of copyrighted sound recordings, while Live365 pays 6.5% of its revenue for use of copyrighted musical works and 33.4% of its revenue for use of copyrighted sound recordings). See Bonneville Int'l Corp. v. Peters, 347 F.3d 485 (3d Cir. 2003) (rejecting webcasters' claim that they should be exempt from paying for use of copyrighted sound recordings, like terrestrial radio stations are). 8 Parity, Platforms (noting that satellite digital audio radio services pay royalties on sound recordings at a rate of 5-7% of revenue, 4-6% less than the rate paid by subscription Internet radio services and the 22-28% less than paid by a webcaster of Live365's size). Cf. 17 U.S.C. §§ 801(b)(1)(C)-(D) (applying only to 17 U.S.C. § 114(f)(1)(B), or preexisting satellite digital audio radio services, and stating that the compulsory fee is to be set based upon consideration of (1) "the relative roles of the copyright owners and the copyright user in the product made available to the public with respect to relative creative contribution, technological contribution, capital investment, cost, risk, and contribution to the opening of new markets" and (2) "minimiz[ing] any disruptive impact on the structure of the industries involved and on generally prevailing industry practices"). 9 Parity, Platforms (statement of Edgar Bronfman, chairman and CEO of Warner Music Group) ("Satellite services are now offering new devices, which can essentially transform a satellite service like XM and Sirius into a distribution service like iTunes."). Owners of copyrights in sound recordings have also sued, claiming that satellite digital audio radio services violate their distribution rights with these recording and playback devices. See Atlantic Recording Corp. v. XM Satellite Radio, Inc., 2007 WL 136186 (S.D.N.Y. Jan. 19, 2007). For more information, see CRS Report RL33538, Satellite Digital Audio Radio Services and Copyright Law Issues, by Brian T. Yeh. 10 Parity, Platforms (statement of Gary Parsons, chairman of the board of XM Satellite Radio, Inc.) (noting an investment of nearly $4 billion in start-up costs). 11 Id. But see Protecting Digital Broadcast Content: Hearing Before the House Comm. on the Judiciary, 109th Cong., 1st Sess. (2005) (statement of Mitch Bainwol, chairman and CEO of the Recording Industry Association of America, Inc.) ("Satellite radio should ... not be able to rely on [AHRA] to create an unlicensed download service."). AHRA requires that importers and manufacturers of certain digital audio recording devices pay a percentage of each device's sale price to owners of copyrighted musical works. ¢ Section 1 of the bill contains its short title, the Platform Equality and Remedies for Rights Holders in Music Act of 2007, or the Perform Act of 2007. Bills with the same name and largely identical content were introduced in both houses of the 109th Congress but not enacted.12 The Digital Millennium Copyright Act (DMCA) of 1998 (P.L. 105-304) created a new compulsory license for webcasters who temporarily reproduce copyrighted sound recordings while publicly performing them (e.g., creating cache or buffer copies prior to or during streaming).13 Under the current version of 17 U.S.C. § 112(e)(4), if the webcasters and copyright owners fail to negotiate a fee for these "ephemeral recordings," the U.S. Copyright Office's Copyright Royalty Judges are to determine a fee corresponding to that which willing buyers and sellers would negotiate in the marketplace. The Perform Act amends 17 U.S.C. § 112(e)(4) by replacing the willing buyer/seller standard with a standard based on "the fair market value of the rights licensed." The rationale for this change is unclear; even the sponsor of S. 256, Senator Feinstein, notes that there is "some concern about what fair market value means, especially under a government licensing scheme where there is not an actual competitive market."14 However, one possibility is that the use of the fair market value in setting compulsory license fees may parallel its use in assessing actual damages for copyright infringement under 17 U.S.C. § 504(a)(1).15 In amending the Copyright Act to grant owners of copyrighted sound recordings exclusive rights in digital public performances of their works, the Digital Performance Right in Sound Recordings Act (DPRSRA) of 1995 (P.L. 104-39) also created a compulsory license for digital public performances of copyrighted sound recordings. The DMCA later modified the DPRSRA compulsory license system by distinguishing between licenses for (1) preexisting subscription services and satellite radio services, such as cable services, XM Satellite Radio, and SIRIUS 12 H.R. 5361, 109th Cong., 2d Sess. (2006) (sponsored by Representative Howard L. Berman) and S. 2644, 109th Cong., 2d Sess. (2006) (sponsored by Senator Dianne Feinstein). 13 17 U.S.C. § 112(e). Although § 112 licenses are available for both (1) services transmitting under any type of license or transfer of copyright and (2) broadcasters licensed by the Federal Communications Commission that make nonsubscription digital transmissions of sound recordings, discussions of § 112 typically use the term "webcaster" as a shorthand for both groups. That convention is followed in this report in reference to § 112 licenses. 14 152 CONG. REC. S3510-01 (Apr. 25, 2006). 15 Yet, in assessing fair market value when setting actual damages, courts have treated fair market value as synonymous with the rate that "a willing buyer would have ... [paid] a willing seller" for use of the work. Christopher Phelps & Assocs., LLC v. Galloway,--- F.3d---, 2007 WL 438806, at *6 (4th Cir. Feb. 12, 2007); see also United States v. Broad. Music, Inc., 316 F.3d 189, 194 (2d Cir. 2003) (fair market value is "the price that a willing buyer and a willing seller would agree to in an arm's length transaction"). Later litigation involving the performing rights organization BMI established that fair market value can be set higher than the retail price in order to cover the costs of processes and services necessary to bring the product to market. United States v. Broad. Music, Inc., 426 F.3d 91, 97 (2d Cir. 2005). ¢ Satellite Radio, and (2) transmissions by new subscription or satellite services and all other eligible nonsubscription transmissions, such as webcasters.16 Currently, under DPRSRA as amended by the DMCA, only the preexisting subscription or satellite services17 have their rates set under standards that consider the services' role in creating new markets and seek to minimize disruption of their industry.18 New subscription or satellite services, as well as eligible nonsubscription services, do not have their rates determined under such standards. Their rate setting standards do not consider their role in creating new markets, or seek to minimize disruption to their industries19--and their rates thus tend to be higher.20 The Perform Act eliminates the DMCA's distinction between preexisting subscription or satellite services and all other services by deleting 17 U.S.C. § 114(f)(1). Instead, it renumbers the current § 114(f)(2) as the new § 114(f)(1) and revises it to cover all "transmissions."21 The Perform Act further revises the new § 114(f)(1)(B) to use the same three factors in setting compulsory license fees for all transmission services. Two of these factors--(1) the transmission's impact on sound recordings' sales or the copyright owners' revenue stream and (2) the creative, technological and financial contributions of the copyright owner and transmission provider--are included in the current § 114(f)(2)(B). However, the Perform Act adds a third factor that more directly addresses copyright owners' concerns that public performance licences are being used to avoid negotiating distribution rights. This factor is "the degree to which reasonable recording affects the potential market for sound recordings, and the additional fees that are required to be paid by services for compensation." The Perform Act also changes § 114(f) in the same way that it changes § 112(e), by providing that compulsory license fees are to correspond to the fair market value of the works, not the price that would be negotiated by willing buyers and sellers in the marketplace. Further, the Perform Act revises the new § 114(f)(1)(C) to allow owners of copyrighted sound recordings to seek re-calculation of the compulsory license fee whenever services digitally transmitting public performances of copyrighted sound recordings introduce new technologies or devices. To the degree that the Perform Act applies the same statutory provision and rate-setting factors to all services that publicly perform copyrighted sound recordings by digital means, it does promote parity. However, the Perform Act does not require absolute rate parity between all services publicly performing sound recordings by digital means under § 114 compulsory licenses. Rather, the Perform Act leaves language in the new § 114(f) that requires different transmitting entities to pay different compulsory license fees: [R]ates and terms shall distinguish among the different types of services then in operation and shall include a minimum fee for each such type of service, such differences to be based on criteria including, but not limited to, the quantity and nature of the use of sound recordings and the degree to which use of the service may substitute for or may promote the purchase of phonorecords22 by consumers.23 16 Compare 17 U.S.C. §§ 114(f)(1) and (f)(2). 17 Governed by 17 U.S.C. § 114(f)(1). 18 See 17 U.S.C. §§ 801(b)(1)(C)-(D) (applying only to subsection (f)(1) of 17 U.S.C. § 114). 19 17 U.S.C. § 804(b)(3)(C). 20 See supra footnote 8. 21 Specifically, the Perform Act deletes from the new 17 U.S.C. § 114(f)(1) language describing "eligible nonsubscription transmission services" and "transmissions by new transmission services specified by subsection (d)(2)." 22 Under U.S. copyright law, a phonorecord is "any material object[] in which sounds ... are fixed by any method ... and (continued...) ¢ The Perform Act attempts to ensure that transmission services cannot rely upon compulsory licenses for public performances to distribute copyrighted sound recordings. Currently, under 17 U.S.C. § 114(d)(2), transmission services are eligible for compulsory licenses only if (1) their transmissions are not part of an interactive service;24 (2) they do not automatically and intentionally cause any device receiving the transmission to switch from one program channel to another unless they are transmitting to a business entity; and (3) they accompany their transmissions, whenever technically feasible, with any information encoded into the sound recording by the copyright owner to identify its title, performer, or underlying musical work. The Perform Act would add a fourth requirement to this listing, allowing a transmission service to rely on the compulsory license only where it takes no affirmative steps to authorize, enable, cause or induce25 the making of a copy or phonorecord by or for the transmission recipient and uses technology that is reasonably available, technologically feasible, and economically reasonable to prevent the making of copies or phonorecords embodying the transmission in whole or in part, except for reasonable recording. Language similar to the fourth requirement is currently in § 114(d)(2)(C)(vi), although the Perform Act would remove this subsection. Presently, § 114(2)(C)(vi) applies only to new subscription services or preexisting subscription services using different transmission mechanisms than those they used on July 31, 1998; it does not reach the activities of preexisting subscription or satellite services such as XM or SIRIUS so long as they do not change their transmission mechanisms.26 Moreover, the Perform Act's proposed language for the new § 114(d)(2)(A)(iv) is broader in terms of what a transmitting service must do to qualify for a (...continued) from which the sounds can be perceived, reproduced, or otherwise communicated, either directly or with the aid of a machine or device." 17 U.S.C. § 101. 23 Congressional proponents of the Perform Act typically say that it will subject "Internet, cable and satellite ... to the same rate standards," not the same rates. Parity, Platforms (statement of Senator Arlen Specter, Chairman of the Senate Judiciary Committee). 24 The meaning of "interactive service" has been a matter of some dispute, as the sponsors of the Perform Act note. See 152 CONG. REC. S3510-01 (Apr. 25, 2006) (statement of Senator Feinstein). Under the DPRSRA, an "interactive service" was defined as "one that enables a member of the public to receive, on request, a transmission of a particular sound recording chosen by or on behalf of that recipient." The DMCA amended that definition to "one that enables a member of the public to receive a transmission of a program specially created for the recipient, or on request, a transmission of a particular sound recording, whether or not as part of a program, which is selected by or on behalf of the recipient." Many people have objected that in changing this definition, the DMCA replaced a "fairly straightforward and objective test [with] one requiring a complex subjective analysis." Music Licensing Issues: Hearing Before the Senate Comm. on the Judiciary, 109th Cong., 1st Sess. (2005) (statement of Rob Glaser, Chairman and CEO of RealNetworks, Inc.). 25 It is unclear whether the Perform Act's usage of "induce" here is intended to correspond to the meaning of "induce" in the Supreme Court's decision in MGM Studios, Inc. v. Grokster, Ltd., 545 U.S. 913 (2005), which held that manufacturers of devices can face secondary liability for copyright infringement when they "induce" their customers to use their products illegally. The verb "induce" is used in the current § 114(d)(2)(C)(vi), which predates the Grokster decision. 26 New devices promoted by XM and SIRIUS allow consumers to record segments of transmissions and then save only selected songs, or re-sequence the songs from their broadcast order. These would not fall within the category of "transmission medium" because they are devices for receiving, not sending, content. See 17 U.S.C. § 101 (defining "transmit"). Some critics contend that the entire Perform Act is targeted at XM and SIRIUS. See Joseph Palenchar, Senate Bill Targets Sat-Radio Recording, 21 TWICE 1 (2006). ¢ compulsory license than is current law. Under the current § 114(d)(2)(C)(vi), a service cannot rely on the compulsory license if it (1) causes or induces recipients to make recordings and (2) to the degree its transmission technologies enable it to limit the making of recordings, fails to impose such limits. Under the new § 114(d)(2)(A)(iv), a service cannot rely on the compulsory license if it (1) authorizes or enables, as well as causes or induces, recipients to make copies or recordings and (2) fails to use technologies that are reasonably available, technologically feasible, and economically reasonable to prevent copying or recording by listeners. Thus, under the Perform Act, a transmitting service must satisfy additional conditions to qualify for a § 114 compulsory license, including potentially using digital rights management (DRM) technologies to limit the recipient's ability to reproduce, distribute, or perform the transmitted music.27 The Perform Act adds a new definition describing "reasonable recording" to 17 U.S.C. § 114(j). Under the Perform Act, a recording cannot be reasonable where an entity, which is transmitting digital public performances under a § 114 compulsory license for private, noncommercial use, fails to employ technological measures incorporated into recording devices to prevent · automated recording or playback of user-selected sound recordings, albums, or artists; · separation of a transmission into its component segments (e.g., songs) so as to permit their playback in a different sequence; and · redistribution, retransmission or exporting of a phonorecord containing any part of a sound recording licensed under § 114 unless the destination device is a secure, in-home network complying with these requirements. The Perform Act does not, however, prohibit automated recording or playback of user-selected programs, time periods or channels, or noninfringing, non-automated manual recording and playback by consumers. The Perform Act relies upon this definition of "reasonable recording" as one of the factors to be considered in setting compulsory license fees under the new § 114(f)(1)(B) and in establishing when a preexisting satellite digital audio radio service may rely on the statutory license under § 114(d). The Perform Act removes references to § 114(f)(2)(C), which the Perform Act renumbers as § 114(f)(1)(C), from 17 U.S.C. § 803(b)(3)(B). 27 Some observers have noted that this requirement of the Perform Act may force webcasters to stream music to the public using a DRM-enabled digital music file format, such as Microsoft's Windows Media Audio (WMA) or Real's RealAudio (RA) format. MP3-encoded audio is not DRM-compliant, and thus webcasters may need to switch their Internet radio streams to a non-MP3 format. Such a change may require additional license fees to be paid to the owners of those proprietary music file formats. 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taht ni dedocne noitamrofni eht yb ,elbisaef yllacinhcet fi ,deinapmocca si gnidrocer dnuos eht fo noissimsnart fi ,deinapmocca si gnidrocer dnuos eht fo noissimsnart eht )e(2001 noitces ni dedivorp sa tpecxe )iii( eht )e(2001 noitces ni dedivorp sa tpecxe )iii( dna ;rehtona dna ;rehtona ot lennahc margorp eno morf hctiws ot noissimsnart eht ot lennahc margorp eno morf hctiws ot noissimsnart eht gniviecer ecived yna esuac yllanoitnetni dna yllacitamotua gniviecer ecived yna esuac yllanoitnetni dna yllacitamotua ton seod ytitne gnittimsnart eht ,tnemhsilbatse ton seod ytitne gnittimsnart eht ,tnemhsilbatse ssenisub a ot noissimsnart a fo esac eht ni tpecxe )ii( ssenisub a ot noissimsnart a fo esac eht ni tpecxe )ii( ;ecivres evitcaretni na fo trap ton si noissimsnart eht )i( ;ecivres evitcaretni na fo trap ton si noissimsnart eht )i( ]--fi )f( noitcesbus htiw ecnadrocca ni ]--fi )f( noitcesbus htiw ecnadrocca ni ,gnisnecil yrotutats ot tcejbus eb llahs ecivres oidar oidua ,gnisnecil yrotutats ot tcejbus eb llahs ecivres oidar oidua latigid etilletas gnitsixeerp a yb edam si taht )1( hpargarap latigid etilletas gnitsixeerp a yb edam si taht )1( hpargarap rednu tpmexe ton noissimsnart a ro ,noissimsnart rednu tpmexe ton noissimsnart a ro ,noissimsnart noitpircsbusnon elbigile na ,)1( hpargarap rednu tpmexe noitpircsbusnon elbigile na ,)1( hpargarap rednu tpmexe ton noissimsnart oidua latigid noitpircsbus a fo snaem ton noissimsnart oidua latigid noitpircsbus a fo snaem yb ylcilbup gnidrocer dnuos a fo ecnamrofrep ehT[ yb ylcilbup gnidrocer dnuos a fo ecnamrofrep ehT[ )A()2()d(411 § )A()2()d(411 § tcA mrofreP eht yb dednemA sa etutatS etutatS tnerruC ¢ .noitubirtsid rehtruf morf dessecca tnetnoc hcus yna tcetorp ot sdohtem elbanosaer yolpme seititne ro snoitazinagro hcus dna ,skrow dethgirypoc fo sesu rehto ro ecnamrofrep cilbup eht gnirotinom ni seititne ro snoitazinagro hcus fo seitivitca eht tuo gniyrrac fo sesoprup rof era sesnecil hcus fi ,seigolonhcet ralimis ro noitcetorp tnetnoc yb detcetorp snoissimsnart hcus ni deniatnoc tnetnoc yna yrassecen sa timsnarter dna ssecca ot ,smret yrotanimircsidnon ,elbanosaer no dna ,esnecil eht gnidivorp fo rosnecil eht ot stsoc elbanosaer eht ylno revoc ot eef suminim ed a rof ro sisab suotiutarg a rehtie no esnecil a detnarg eb llahs ytitne ro noitazinagro hcus ynA .snoissimsnart hcus ni deniatnoc skrow dethgirypoc fo sesu rehto ro secnamrofrep cilbup gnirotinom morf ,seititne ro snoitazinagro hcus ,fo flaheb no gnitca ro ,yb trap ni ro elohw ni denwo ytitne yna ro ,noitazinagro sthgir lacinahcem a ro yteicos sthgir gnimrofrep a tneverp ro edulcerp llahs gnihtoN .droceronohp a fo gnikam eht ecudni ro ,esuac ,elbane ,ezirohtua flesti ni ton seod atadatem gniynapmocca dna noissimsnart a fo gnireffo erem eht ,)vi()A( hpargarapbus fo sesoprup roF )C()2()d(411 § fo dne ta dedda txet weN ;ygolonhcet hcus yb dettimrep tnetxe eht ot sdroceronohp fo gnikam hcus timil ot ygolonhcet ;ygolonhcet hcus yb dettimrep hcus stes ytitne gnittimsnart eht ,tamrof latigid tnetxe eht ot sdroceronohp fo gnikam hcus timil a ni yltcerid noissimsnart eht fo sdroceronohp ot ygolonhcet hcus stes ytitne gnittimsnart eht ,tamrof fo tneipicer noissimsnart eht yb gnikam latigid a ni yltcerid noissimsnart eht fo sdroceronohp eht timil ot ytitne gnittimsnart eht selbane fo tneipicer noissimsnart eht yb gnikam eht ytitne gnittimsnart eht yb desu ygolonhcet eht timil ot ytitne gnittimsnart eht selbane ytitne gnittimsnart fi dna ,tneipicer noissimsnart eht yb droceronohp eht yb desu ygolonhcet eht fi dna ,tneipicer noissimsnart a fo gnikam eht ecudni ro esuac ot spets eht yb droceronohp a fo gnikam eht ecudni ro esuac evitamriffa on sekat ytitne gnittimsnart eht )iv( ot spets evitamriffa on sekat ytitne gnittimsnart eht )iv( --8991 ,13 yluJ no ecivres --8991 ,13 yluJ no ecivres hcus yb desu muidem noissimsnart emas eht ni naht hcus yb desu muidem noissimsnart emas eht ni naht rehto ecivres noitpircsbus gnitsixeerp a yb ro ecivres rehto ecivres noitpircsbus gnitsixeerp a yb ro ecivres noitpircsbus wen a yb edam si taht )1( hpargarap rednu noitpircsbus wen a yb edam si taht )1( hpargarap rednu tpmexe ton noissimsnart noitpircsbus a ro noissimsnart tpmexe ton noissimsnart noitpircsbus a ro noissimsnart noitpircsbusnon elbigile na fo esac eht ni )C( noitpircsbusnon elbigile na fo esac eht ni )C( ]--fi )f( noitcesbus htiw ecnadrocca ni ]--fi )f( noitcesbus htiw ecnadrocca ni ,gnisnecil yrotutats ot tcejbus eb llahs ecivres oidar oidua ,gnisnecil yrotutats ot tcejbus eb llahs ecivres oidar oidua latigid etilletas gnitsixeerp a yb edam si taht )1( hpargarap latigid etilletas gnitsixeerp a yb edam si taht )1( hpargarap rednu tpmexe ton noissimsnart a ro ,noissimsnart rednu tpmexe ton noissimsnart a ro ,noissimsnart noitpircsbusnon elbigile na ,)1( hpargarap rednu tpmexe noitpircsbusnon elbigile na ,)1( hpargarap rednu tpmexe ton noissimsnart oidua latigid noitpircsbus a fo snaem ton noissimsnart oidua latigid noitpircsbus a fo snaem yb ylcilbup gnidrocer dnuos a fo ecnamrofrep ehT[ yb ylcilbup gnidrocer dnuos a fo ecnamrofrep ehT[ )C()2()d(411 § )C()2()d(411 § tcA mrofreP eht yb dednemA sa etutatS etutatS tnerruC ¢ .eerga yam seitrap eht sa doirep rehto hcus ro ,eripxe 8 retpahc dna )B( ro )A( hpargarapbus rednu denimreted yltnecer tsom secivres noissimsnart oidua latigid noitpircsbus rof smret dna setar ytlayor eht hcihw no etad eht no gnidne dna ecivres fo epyt wen hcus fo noitpecni eht htiw gninnigeb doirep eht rof ecivres noissimsnart fo epyt wen hcus ot tcepser htiw stnemyap ytlayor fo setar dna smret elbanosaer gninimreted fo esoprup eht rof ,lanoitarepo emoceb ot tuoba si ro si demrofrep era sgnidrocer dnuos hcihw no ecivres noissimsnart oidua latigid noitpircsbus fo epyt wen a taht gnitacidni secivres oidar oidua latigid etilletas gnitsixeerp yna ro ,secivres noitpircsbus gnitsixeerp yna ,sgnidrocer dnuos fo srenwo thgirypoc yna yb delif noititep a ot tnausrup detaitini eb llahs osla )B( dna )A( shpargarapbus rednu serudecorp ehT )C( .)A( hpargarapbus ni debircsed stnemeerga esnecil yratnulov rednu secnatsmucric elbarapmoc dna secivres noissimsnart oidua latigid noitpircsbus fo sepyt elbarapmoc rof smret dna setar eht redisnoc yam segduJ ytlayoR thgirypoC eht )1()b( 108 noitces ni htrof tes sevitcejbo eht ot noitidda ni ,secivres oidar oidua latigid etilletas gnitsixeerp dna secivres noitpircsbus gnitsixeerp rof smret dna setar gnihsilbatse nI .eerga yam seitrap eht sa doirep rehto hcus ro ,4002 fo tcA mrofeR noitubirtsiD dna ytlayoR thgirypoC eht fo )3()b(6 noitces rednu dedivorp doirep lanoitisnart a ,)A( hpargarapbus ni deificeps doirep raey-5 eht gnirud hpargarap siht yb detceffa sgnidrocer dnuos gnimrofrep seititne dna sgnidrocer dnuos fo srenwo thgirypoc lla no gnidnib eb ,)3( hpargarap ot tcejbus ,llahs segduJ ytlayoR thgirypoC eht yb denimreted smret dna setar elbanosaer fo eludehcs ehT )B( .stsoc nwo rieht raeb llahs gnideecorp hcae ot seitrap ehT .sgnidrocer dnuos hcus ot tcepser htiw snoissimsnart noitpircsbus hcus gnirevoc sesnecil segduJ ytlayoR thgirypoC eht ot timbus yam secivres oidar oidua latigid etilletas gnitsixeerp ro ,secivres noitpircsbus gnitsixeerp ,sgnidrocer dnuos fo srenwo thgirypoc ynA .noitarepo ni neht secivres noissimsnart oidua latigid fo sepyt tnereffid eht gnoma hsiugnitsid llahs setar dna smret hcuS .doirep rehto hcus ro 4002 fo tcA mrofeR noitubirtsiD dna ytlayoR thgirypoC eht fo )3()b(6 noitces rednu dedivorp si doirep lanoitisnart tnereffid a erehw tpecxe ,decnemmoc eb ot era sgnideecorp eht hcihw ni raey eht gniwollof raey dnoces eht fo 1 yraunaJ no gninnigeb doirep raey-5 eht gnirud )2()d( noitcesbus yb deificeps secivres oidar oidua latigid etilletas gnitsixeerp yb snoissimsnart dna secivres noitpircsbus gnitsixeerp yb snoissimsnart noitpircsbus rof stnemyap ytlayor fo smret dna setar elbanosaer enimreted llahs 8 retpahc rednu sgnideecorP )A( )1( )2()f(411 § ylremrof saw tahw htiw decalper dna deteleD )1()f(411 § tcA mrofreP eht yb dednemA sa etutatS etutatS tnerruC ¢ .stsoc nwo rieht raeb llahs gnideecorp hcae ot seitrap ehT .sgnidrocer dnuos hcus ot tcepser htiw secivres noitpircsbus wen dna snoissimsnart noitpircsbusnon elbigile hcus gnirevoc sesnecil segduJ ytlayoR thgirypoC eht ot timbus yam hpargarap siht yb detceffa sgnidrocer dnuos gnimrofrep seititne yna ro sgnidrocer dnuos fo srenwo thgirypoc ynA .ecivres fo epyt hcus hcae rof eef muminim a edulcni llahs dna noitarepo ni neht secivres noitpircsbus wen dna secivres noissimsnart noitpircsbusnon elbigile fo sepyt tnereffid eht gnoma hsiugnitsid llahs smret dna setar hcuS .eerga yam seitrap eht sa doirep rehto hcus ro ,4002 fo tcA mrofeR noitubirtsiD dna ytlayoR thgirypoC eht fo )3()b(6 noitces rednu dedivorp si doirep lanoitisnart .eerga yam seitrap eht sa doirep rehto hcus tnereffid a erehw tpecxe ,decnemmoc eb ro ,4002 fo tcA mrofeR noitubirtsiD dna ytlayoR ot era sgnideecorp eht hcihw ni raey eht gniwollof thgirypoC eht fo )3()b(6 noitces rednu dedivorp raey dnoces eht fo 1 yraunaJ no gninnigeb doirep si doirep lanoitisnart tnereffid a erehw tpecxe raey-5 eht gnirud )2()d( noitcesbus yb deificeps ,decnemmoc eb ot era sgnideecorp eht hcihw ni secivres noitpircsbus wen yb snoissimsnart raey eht gniwollof raey dnoces eht fo 1 yraunaJ no dna secivres noissimsnart noitpircsbusnon gninnigeb sdoirep raey-5 gnirud snoissimsnart rof elbigile yb snoissimsnart noitpircsbus rof stnemyap ytlayor fo smret dna setar elbanosaer stnemyap ytlayor fo smret dna setar elbanosaer enimreted llahs 8 retpahc rednu sgnideecorP enimreted llahs 8 retpahc rednu sgnideecorP )A()1()f(411 § sa derebmuneR )A()2()f(411 § tcA mrofreP eht yb dednemA sa etutatS etutatS tnerruC ¢ .)A( hpargarapbus rednu detaitogen stnemeerga esnecil yratnulov rednu secnatsmucric elbarapmoc dna secivres noissimsnart oidua latigid fo sepyt elbarapmoc rof smret dna setar eht redisnoc yam segduJ ytlayoR .)A( hpargarapbus rednu detaitogen stnemeerga thgirypoC eht ,smret dna setar hcus gnihsilbatse nI esnecil yratnulov rednu secnatsmucric elbarapmoc dna secivres noissimsnart oidua latigid fo sepyt elbarapmoc .noitasnepmoc rof secivres yb diap rof smret dna setar eht redisnoc yam segduJ ytlayoR eb ot deriuqer era taht seef lanoitidda eht dna thgirypoC eht ,smret dna setar hcus gnihsilbatse nI ,sgnidrocer dnuos rof tekram laitnetop eht stceffa .ksir dna ,tsoc ,tnemtsevni latipac gnidrocer elbanosaer hcihw ot eerged eht )iii( ,noitubirtnoc lacigolonhcet ,noitubirtnoc evitaerc evitaler dna ;ksir dna ,tsoc ,tnemtsevni latipac ot tcepser htiw cilbup eht ot elbaliava edam ecivres ,noitubirtnoc lacigolonhcet ,noitubirtnoc evitaerc evitaler eht dna krow dethgirypoc eht ni ytitne gnittimsnart ot tcepser htiw cilbup eht ot elbaliava edam ecivres eht dna renwo thgirypoc eht fo selor evitaler eht )ii( eht dna krow dethgirypoc eht ni ytitne gnittimsnart eht dna renwo thgirypoc eht fo selor evitaler eht )ii( dna ;sgnidrocer dnuos sti morf eunever fo smaerts rehto s'renwo thgirypoc dna ;sgnidrocer dnuos gnidrocer dnuos eht ecnahne yam ro htiw erefretni sti morf eunever fo smaerts rehto s'renwo thgirypoc yam esiwrehto ro sdroceronohp fo selas eht etomorp gnidrocer dnuos eht ecnahne yam ro htiw erefretni yam ro rof etutitsbus yam ecivres eht fo esu rehtehw )i( yam esiwrehto ro sdroceronohp fo selas eht etomorp yam ro rof etutitsbus yam ecivres eht fo esu rehtehw )i( --gnidulcni ,seitrap eht yb detneserp noitamrofni gnimmargorp dna evititepmoc ,cimonoce --gnidulcni ,seitrap eht no noisiced sti esab llahs segduJ ytlayoR thgirypoC yb detneserp noitamrofni gnimmargorp dna evititepmoc eht ,smret dna setar hcus gninimreted nI .relles gnilliw ,cimonoce no noisiced rieht esab llahs segduJ a dna reyub gnilliw a neewteb ecalptekram eht ni ytlayoR thgirypoC eht ,smret dna setar hcus gninimreted detaitogen neeb evah dluow taht smret dna setar nI .noitces siht rednu desnecil sthgir eht fo eulav eht tneserper ylraelc tsom taht smret dna setar tekram riaf eht hsilbatse llahs segduJ ytlayoR thgirypoC hsilbatse llahs segduJ ytlayoR thgirypoC eht ,secivres eht ,secivres noitpircsbus wen dna secivres noitpircsbus wen dna secivres noitpircsbusnon noitpircsbusnon elbigile yb snoissimsnart rof smret elbigile yb snoissimsnart rof smret dna setar dna setar gnihsilbatse nI .sremusnoc yb sdroceronohp gnihsilbatse nI .sremusnoc yb sdroceronohp fo esahcrup fo esahcrup eht etomorp yam ro rof etutitsbus yam eht etomorp yam ro rof etutitsbus yam ecivres eht fo ecivres eht fo esu hcihw ot eerged eht dna sgnidrocer esu hcihw ot eerged eht dna sgnidrocer dnuos fo esu eht dnuos fo esu eht fo erutan dna ytitnauq eht ,ot detimil fo erutan dna ytitnauq eht ,ot detimil ton tub ,gnidulcni ton tub ,gnidulcni airetirc no desab eb ot secnereffid airetirc no desab eb ot secnereffid hcus ,ecivres fo epyt hcus ,ecivres fo epyt hcus hcae rof eef muminim a edulcni hcus hcae rof eef muminim a edulcni llahs dna noitarepo llahs dna noitarepo ni neht secivres noissimsnart ni neht secivres noissimsnart noitpircsbusnon noitpircsbusnon elbigile fo sepyt tnereffid eht gnoma elbigile fo sepyt tnereffid eht gnoma hsiugnitsid llahs hsiugnitsid llahs smret dna setar hcuS .eerga yam seitrap smret dna setar hcuS .eerga yam seitrap eht sa doirep eht sa doirep rehto hcus ro ,4002 fo tcA noitubirtsiD dna rehto hcus ro ,4002 fo tcA noitubirtsiD dna ytlayoR ytlayoR thgirypoC eht fo )3()b(6 noitces rednu dedivorp thgirypoC eht fo )3()b(6 noitces rednu dedivorp doirep doirep lanoitisnart a ,)A( hpargarapbus ni deificeps lanoitisnart a ,)A( hpargarapbus ni deificeps doirep raey doirep raey-5 eht gnirud noitces siht rednu sgnidrocer -5 eht gnirud hpargarap siht yb detceffa sgnidrocer dnuos gnimrofrep seititne dna sgnidrocer dnuos dnuos gnimrofrep seititne dna sgnidrocer dnuos fo srenwo thgirypoc lla no gnidnib eb ,)3( hpargarap fo srenwo thgirypoc lla no gnidnib eb ,)3( hpargarap ot tcejbus ,llahs segduJ ytlayoR thgirypoC eht yb ot tcejbus ,llahs segduJ ytlayoR thgirypoC eht yb denimreted smret dna setar elbanosaer fo eludehcs ehT denimreted smret dna setar elbanosaer fo eludehcs ehT )B()1()f(411 § sa derebmuneR )B()2()f(411 § tcA mrofreP eht yb dednemA sa etutatS etutatS tnerruC ¢ .secivres fo sepyt wen gninrecnoc .secivres fo sepyt wen gninrecnoc )C()2()f( 411 dna )C()1()f( 411 noitces ot tnausrup )C()2()f( 411 dna )C()1()f( 411 noitces ot tnausrup decnemmoc sgnideecorp nrevog llahs hpargarapbus siht decnemmoc sgnideecorp nrevog llahs hpargarapbus siht ,retpahc siht fo noisivorp rehto yna gnidnatshtiwtoN )i( ,retpahc siht fo noisivorp rehto yna gnidnatshtiwtoN )i( )i()C()3()b(408 § )i()C()3()b(408 § .thgirypoc fo tnemegnirfni na ton si taht rennam a ni kcabyalp dna gnidrocer launam detamotua-non ni gnigagne morf remusnoc a tneverp llahs hpargarap siht ni gnihtoN )B( .hpargarap siht ni stnemeriuqer eht fo hcae htiw seilpmoc osla taht krowten emoh-ni eruces a fo trap si ecived noitanitsed eht sselnu ,aidem elbavomer ro stuptuo latigid yb ecived eht morf noitces siht rednu desnecil ecnamrofrep a fo trap ro lla gniydobme droceronohp a fo gnitropxe rehto ro noissimsnarter ,noitubirtsider eht timrep ton od )vi( dna ;ecneuqes detalupinam a fo kcabyalp eht ni stluser hcihw margorp noissimsnart eht ni deniatnoc lairetam dethgirypoc eht fo stnemges tnenopmoc fo noitarapes eht timrep ton od )iii( ;stsitra ro ,smubla ,sgnidrocer dnuos cificeps no desab kcabyalp ro gnidrocer detamotua timrep ton od )ii( ;resu eht rof ro yb detceles sa slennahc ro ,sdoirep emit ,smargorp cificeps no desab kcabyalp ro gnidrocer detamotua timrep )i( --ecived gnidrocer a otni detaroprocni era hcihw dna ,ytitne gnittimsnart eht yb desu serusaem lacigolonhcet erehw esu laicremmocnon ,etavirp rof noitces siht rednu desnecil ecnamrofrep a fo trap ro lla gniydobme droceronohp a fo gnikam eht snaem 'gnidrocer elbanosaer` A )A( )01()j(411 § fo dne ta dedda txet weN )j(411 § .eerga yam seitrap eht sa doirep rehto hcus ro ,eripxe .eerga yam seitrap eht sa doirep rehto hcus 8 retpahc dna )B( ro )A( hpargarapbus rednu denimreted ro ,eripxe 8 retpahc dna )B( ro )A( hpargarapbus rednu yltnecer tsom ,eb yam esac eht sa ,secivres oidua oidar denimreted yltnecer tsom ,eb yam esac eht sa ,secivres latigid etilletas gnitsixeerp ro secivres noissimsnart noitpircsbus wen ro ,secivres noitpircsbusnon oidua latigid noitpircsbus gnitsixeerp rof smret elbigile ,secivres noissimsnart oidua latigid noitpircsbus dna setar ytlayor eht hcihw no etad eht no gnidne dna gnitsixeerp rof smret dna setar ytlayor eht hcihw ecivres fo epyt wen hcus fo noitpecni eht htiw gninnigeb no etad eht no gnidne dna ecivres fo epyt wen hcus doirep eht rof ecivres fo epyt wen hcus ot tcepser fo noitpecni eht htiw gninnigeb doirep eht rof ecivres htiw stnemyap ytlayor fo setar dna smret elbanosaer fo epyt wen hcus ot tcepser htiw stnemyap ytlayor gninimreted fo esoprup eht rof ,lanoitarepo emoceb fo setar dna smret elbanosaer gninimreted fo esoprup ot tuoba si ro si demrofrep era sgnidrocer dnuos eht rof ,lanoitarepo emoceb ot tuoba si ro si hcihw no ecivres noitpircsbus wen ro ecivres demrofrep era sgnidrocer dnuos hcihw no ecivres noitpircsbusnon elbigile fo epyt wen a taht gnitacidni fo epyt wen a taht gnitacidni ytitne gnittimsnart ecivres noitpircsbus wen ro ecivres noitpircsbusnon yna ro sgnidrocer dnuos fo srenwo thgirypoc elbigile yna ro sgnidrocer dnuos fo srenwo thgirypoc yna yb delif noititep a ot tnausrup detaitini eb osla yna yb delif noititep a ot tnausrup detaitini eb osla llahs )B( dna )A( shpargarapbus rednu serudecorp ehT llahs )B( dna )A( shpargarapbus rednu serudecorp ehT )C()1()f(411 § sa derebmuneR )C()2()f(411 § tcA mrofreP eht yb dednemA sa etutatS etutatS tnerruC ¢ byeh@crs.loc.gov, 7-5182 Legislative Attorney Brian T. Yeh Kate M. Manuel .eb yam esac .eb yam esac eht sa ,)C()2()f(411 ro )C()1()f(411 noitces ni htrof tes eht sa ,)C()2()f(411 ro )C()1()f(411 noitces ni htrof tes doirep eht rof tceffe ni niamer llahs smret dna setar ehT doirep eht rof tceffe ni niamer llahs smret dna setar ehT )vi()C()3()b(408 § )vi()C()3()b(408 § tcA mrofreP eht yb dednemA sa etutatS etutatS tnerruC ¢ ------------------------------------------------------------------------------ For other versions of this document, see http://wikileaks.org/wiki/CRS-RL33922