Ifla background paper_e-lending_0

IFLA E-Lending Background Paper

Introduction
Digital content has been an important component of library collections for over two decades.
Until relatively recently this content largely comprised access to aggregated databases of
journals, newspapers, popular magazines and technical and specialized monographs. In 2010
the huge and escalating increase in the consumer purchasing of eReaders and tablets in a few
markets and the corresponding increase in the commercial availability of downloadable
consumer trade eBooks in turn led to an increase in the availability of and demand for
downloadable eBooks in public libraries.

There are a variety of technical, legal and strategic issues which arise from the addition of
downloadable eBooks to library collections which have led to concern, confusion and
frustration for libraries and their users, publishers and authors. The IFLA Governing Board
formed a Working Group to prepare a background paper on the issues relating to eBook
availability in libraries to assist in the formulation of a policy on the matter.

Context
In the IFLA context, consideration of the issues surrounding eBooks is especially complex
for a variety of reasons:

 The structure and operations of the publishing and library sectors country to
country can differ substantially.
 In many countries digital library collections are underdeveloped and consumers do
not have access to eReaders, tablets and eBooks.
 There is a diverse range of eBook platforms and standards in the market which are
often not compatible and, in the case of library applications, not user friendly or
accessible.
 Different types of libraries have differing requirements for digital content, most
notably academic/research libraries and public libraries.
 Scholarly and trade publishing have fundamentally different business models and
take very different approaches for digital sales to libraries.
 The transition from print to digital is raising new legal issues for policymakers to
address, especially in the area of copyright and its underlying principles which
have enabled library lending in the print era
 The same transition, and the potential for digital lending models to collect and
store large amounts of information on users’ reading habits, raises fears regarding
the protection of user privacy

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Of necessity, any initial IFLA position on eBooks in library collections will have a North
American and English language focus given that this is where the digital market is most
active and where concerns are first arising. This is already starting to change with expanding
use of downloadable eBooks in countries such as China. South Korea is one notable
exception with reported eBook sales which place it as the second largest global market for
eBooks after the USA.

An ongoing research project1 reported in late 2011 eBook market share as follows;

 North America – 18% (USA has 98% of these eBook sales)
 Asia – 2.4% (South Korea 45%, Japan 25% and China 25%)
 EU – 1.1% (UK 52%, Germany 28%, France 7%)

As would be expected eBook market share correlates with user friendly sourcing options,
wide title availability in the local language and affordable availability of eReader and tablets.
The global dominance of English language eBook title availability reinforced by eReader
availability is starkly evident in the statistics on titles available by country: in the USA –
1,000,000; UK 400,000, Germany/France - 80,000 each; Japan – 50,000; Australia – 35,000;
Italy – 20,000; Spain – 15,000; Brazil 6,000. Statistics such as these are a snapshot at one
point in time of a rapidly changing environment and, while illustrative, should not be
assumed to be representative of the situation moving forward.

It also should be noted that one supplier, Amazon, dominates the eBook market with an
estimated market share of 60% of North American eBook sales. This market concentration is
of special relevance to libraries, publishers and book retailers given Amazon’s aggressive
push for vertical integration with recent book publishing and lending initiatives layered on
their dominant position in eReader and eBook sales. Amazon has consistently proven to be a
formidable market force and its ability to influence eBook pricing and availability by type of
customer (e.g. libraries) and by country cannot be ignored in assessing ways forward for
library eBook collections.

Publishing Background
Publishers are struggling to develop a business model which addresses the very different
markets for print books and eBooks. On the digital side of publishing there is no market place
consensus on the best way forward and current practices are being challenged on several
fronts, not least by governments in the US and EU where there are active investigations of
pricing models and anti-competitive practice. Publishers are focused on finding a financially
sustainable approach to the eBook market while addressing the ever present danger of piracy.
Of direct relevance to this paper is how publishers view the library market in the context of
the emerging eBook market model. In considering eBooks and libraries it is important to note
the different business models for scholarly and trade publishing.

1
A. T. Kennedy and Bookrepublic, Do Readers Dream of Electronic Books, Publishers Launch Conference,
Frankfurt, 10 October 2011.
2

Several factors distinguish scholarly publishers from trade publishers:

 Their primary market is the research/academic library sector.
 They usually control global rights for their content and market it directly.
 Digital distribution is long standing and there are established protocols on the use
of the content.
 Digital access is almost exclusively streamed via a live Internet connection and
not usually downloaded to a hand held device.

In contrast, trade publishers operate with a fundamentally different business model:

 Their primary market is retail sales to individuals through bricks and mortar or
online booksellers.
 Their distribution right for a work (print or digital) is most often regional.
 Market demand for trade eBooks is a recent development directly tied to the
explosion in eReader sales in 2010.
 Piracy of popular eBook titles is an overriding concern given the perceptions on
what happened to the recorded music industry.
 Their digital eBook distribution has presented unique challenges for both
publishers and the consumer due to the access control wielded by the small
number of eReader platforms available to customers (the Amazon Kindle and
Apple iPhone/iPad primarily).
 Their understanding of the library market is variable at best and some view library
availability of eBooks as a direct threat to their and their author’s economic
interests and they therefore withhold library sales of titles.
 Major eBook platforms such as Amazon’s Kindle do not enable library
“circulation” of eBooks to their eReaders, or if they do, this functionality is not
consistently applied in different countries.
 At present a US based company OverDrive dominates the English language
market for library sales of downloadable eBooks and imposes licence terms and
conditions (some set by OverDrive and some by publishers) which establish the
policy parameters for how libraries make eBooks available including loan
regulations and borrower eligibility. Despite OverDrive’s success in the library
market and the limitations it places on library use, it should be noted that the
majority of multi-national trade book publishers have not agreed to make their
titles available to it for sale to libraries.

There are different interests at play when considering the publishing, distribution and library
availability of eBooks and in the words of industry observer Mike Shatzkin: “Our problem is
the interests don’t align and what I think people sometime have trouble accepting is that it is
possible they never will”2. Shatzkin notes in the same post that “These aren’t moral

2
The Shatzkin Files, “Libraries and publishers don’t have symmetrical interest in a conversation”, posted 22
Feb 2012; http://www.idealog.com/blog/category/libraries
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decisions, they’re commercial ones”. Publishers worry that, in the words of Macmillan
President Brian Napack, “The fear is I get one library card and never have to buy a book
again”3. In this context it is worth citing from an ongoing European Economic and Social
Committee review of the publishing industry where the writing, publishing and availability of
written works are viewed as serving functions well beyond the economic:

As the largest cultural industry in Europe, book publishing is a crucial player in the
economic, social, political, ethical, educational and scientific development of Europe.
European literature is one of Europe’s key artistic heritages, the cornerstone of the
cultural development of a continent, embodying the vast diversity of each country as
each European language, region, minority is represented and recorded for posterity
in books. Book publishing has also the responsibility of working towards addressing
the lack of understanding between different cultures.4

It should be noted that in numerous countries the indigenous publishing industry receives
government support in recognition of the societal good served by the production and
distribution of written culture. Libraries are seen as an integral part of this ecosystem of
reading and the withholding of eBooks from library collections has the potential to weaken
the perception of publishing as a benefit to society as a whole.

Library Background
Librarians are struggling with a series of challenges to long-held principles which has been
initiated by the migration of the print book to the downloadable eBook. For the first time the
ability to acquire commercially published books for library collections is constrained. This
brings into question at the library’s role in ensuring freedom of access to information for all
which has at its core the belief that ability to pay should not dictate who can read or view
specific works. The principle of privacy for library users in their use of library collections and
services is now more difficult to ensure given the nature of eBook distribution. A range of
practices and policies which were under the exclusive control of the library are now with
eBooks a matter of negotiation with publishers and/or distributors.

As is the case with scholarly and trade publishers, there are differing requirements in digital
content licences, including those for eBooks, between academic/research and public libraries.
Many academic/research libraries include extensive collections of trade published titles in
their collections and a number of public main branches are major research libraries in their

3
Karen Springen, “ Reaching the e-Teen “, Publishers Weekly, 21 February 2011, page 23.
4
European Economic and Social Committee, « Book Publishing on the Move, Document prepared for Second
Study Group Meeting », Brussels, 2011.
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own right. However academic/research library requirements for digital collections generally
vary from the requirements of public libraries in that they usually5:

 provide digital content to their users via a live Internet connection.
 often have access to a robust technology infrastructure and extensive experience
in licencing electronic products.
 have specific requirements for uses of content such as eReserves and course
packs.
 place a high priority on inter-library lending.
 are accustomed to consortia purchasing, sometimes national or even international
in scope.
 have options to pursue alternate approaches to collection development such as
supporting open access journals and promoting Creative Commons licencing.
 have a more clearly limited set of users than public libraries.

In contrast public libraries:

 serve users whose overriding preference is for downloadable trade titles, both
fiction and non-fiction (while often also providing streamed magazine, newspaper
and technical monograph content).
 place a greater emphasis on the acquisition of newly published titles.
 often have access to limited technology infrastructure.
 may lend eReading devices to users which come with “pre-loaded” eBooks.

Libraries argue that the availability of printed and digital books in their collections is an
important asset for publishers and authors by both promoting discoverability and thereby
sales, and by providing access to works long after their retail life span is finished. Long term
access to out of print titles can generate revenue for authors in countries in the European
Union and Australia and Canada through public lending right (PLR) payments. While it is
unclear how, if at all, PLR programs will treat eBooks, library availability of books,
irrespective of their format, is an important aspect in promoting awareness of authors and
specific works. It should also be noted that the availability of eBooks from libraries may act
as a deterrent to piracy as readers who cannot or will not pay for an eBook may prefer to
source the digital file from a trusted intermediary such as a library.

While publishers are most likely to align with Shatzkin’s previously noted assertion that the
negotiations on eBook availability don’t involve moral decisions but rather commercial ones,
libraries continue to seek licence and legislated solutions to address the principles which have
been the foundation of their collection development for over a century. A major problem in
the way of this is the current refusal of the majority of the “Big Six” trade publishers to sell

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Emphasis here is place on academic/research libraries and (further below) public libraries in developed
countries
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eBooks to libraries6. It should be noted however that many smaller trade publishers, along
with scholarly publishers, do see the library market as an indispensible component of their
eBook business model. For a while it even seemed that there was at least one advocate for the
library market for eBooks among the “Big Six”: Random House Executive Ruth Liebmann is
on record as saying that "a library book does not compete with a sale. A library book is a
sale." She also noted that libraries are comparable to independent booksellers as a percentage
of business, and they "never send books back."7 Welcome as this stance is, in March 2012
Random House raised the price of eBooks for sale to libraries by 300%8.

eBooks
Often there is confusion over what is an eBook and the process by which they are supplied to
readers by libraries.

At the outset it is understood that policy guidelines applying to acquisition and dissemination
of eBooks only apply to works under copyright protection. It is also a given that some forms
of a Creative Commons licence can limit constraints on how libraries treat eBooks. In
discussing eBooks it is important to distinguish among the different formats which are
commercially available and in public library collections. Two formats predominate for text
eBooks: EPUB and PDF9. EPUB is emerging as the preferred solution for retail and library
eBook use with the exception of books with high graphic content.

Publishers report that PDF is cheaper to produce. Some publishers do limit availability to
libraries to the PDF format. Other eBook formats are emerging often to address specific

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The “Big Six“ are Random House, Harper Collins, Penguin, Simon&Schuster, Hachete Book Group,
Macmillan and Penguin. Harper Collins sell libraries eBooks that can only be loaned out 26 times before having
to be repurchased, and Random House has increased its prices for libraries significantly to “the high value
placed on perpetuity of lending and simultaneity of availability for our titles“ (See FN8 below)
7
Peter Osnos, “Library Wars“, The Atlantic, 506 December 2011.
http://www.theatlantic.com/technology/archive/2011/12/library-wars-amazon-and-publishers-vie-for-control-of-
e-book-rentals/249544/#.Tt5zNoHkszY.twitter
8
Michael Kelly, « Librarians Feel Sticker Shock as Price for Random House Ebooks Rises as Much as 300
Percent”, The Digital Shift, March 2 2012.
http://www.thedigitalshift.com/2012/03/ebooks/librarians-feel-sticker-shock-as-price-for-random-house-ebooks-
rise-as-much-as-300-percent/
9 EPUB: Short for electronic publication, EPUB is an open source eBook standard adopted by the International
Digital Publishing Forum in 2007. The format is designed to serve as a single application which can be used by
publishers, conversion companies, distributors and retailers at all stages of the eBook’s existence. As EPUB
uses reflowable content (i.e. the text adapts its presentation to the reading device), it means that text display can
be adjusted to suit different devices. EPUB is now available in version 3 which among other attributes is closely
aligned with the DAISY format for use by the print disabled and provides embedded support for non-Roman
alphabets including Chinese characters. http://en.wikipedia.org/wiki/EPUB
PDF: Developed in 1993 by Adobe, PDF (Portable Document Format) became an open source file format in
2008. It is page oriented and provides a fixed image of text and image on the device screen and therefore is the
preferred format for books with visual content, including graphic novels. PDF is not considered to provide an
acceptable image on handheld eBook readers such as the Kindle.
http://en.wikipedia.org/wiki/Portable_Document_Format
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market needs including CBE developed by Apabi for Chinese character downloadable
eBooks.

The format of an eBook is a key factor in its utility for readers and therefore a major factor in
a library’s decision to purchase or not. In considering an IFLA policy on eBooks different
formats should be considered but it should be remembered that in the perception of the
general public and many librarians “eBook” refers to text downloadable to a hand held
device.

While it is understood that a variety of different licencing models are emerging
internationally for accessing eBooks, OverDrive dominates the English language library
market. Under the OverDrive model, when a library licences access to an eBook an
agreement is reached on how library card holders are validated based on specified criteria set
by OverDrive and/or the publisher. The validation may be done by the library, a library
consortium or contracted to the distributor for a fee. Access may be “in perpetuity”, on a time
limited basis, or for a specified number of loans. It is important to note that once access is
agreed to, the library card holder downloads the eBook file from the distributor’s server (or
possibly the publisher’s server). Typically the eBook file is never in the possession of the
library which has significant implications when considering the library’s ability to carry out
functions such as preservation or interlibrary loan. In effect, the typical “in perpetuity”
purchase of on eBook through an distributor such as OverDrive using this model only will
provide access on an ongoing basis as long as the library maintains a relationship with the
distributor or, indeed, as long as the distributor continues to operate.

There are examples where libraries have purchased eBooks as digital files which are
transferred to the library or a library consortium and operations such as making preservation
back-up copies and migrating content to different platforms for preservation purposes are
feasible. These types of transactions have been largely limited to research/academic libraries
or their consortia and usually are for streamed PDF files not EPUB files downloadable to a
hand held device or computer.

Legal Context for E-Lending
The library circulation of physical objects (books, DVD’s, CD’s etc.) is enabled by the legal
concept of exhaustion, sometimes referred to as the first sale doctrine. This means that the
rightsholder (usually a publisher who has received delegated distribution rights from the
author) loses certain rights once a book is sold. These “lost” rights relating to the book as
physical object include the right to control subsequent lending or re-sale of the physical item.
Certain other rights relating to the book’s content such as the reproduction right continue
after the first sale.

When an eBook is ‘purchased’ the concept of exhaustion as found in print sales does not
apply – which affects libraries’ legal right to subsequently lend the content without approval
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from the rightsholder. For the purposes of enabling e-Lending libraries presently require
license solutions: e.g. agreements with publishers on licensing terms and conditions which
enable libraries to make available to their users works chosen by the library published in
electronic formats.

While these deliberations are underway and libraries are entering into very different licence
agreements for eBooks, the World Intellectual Property Organization (WIPO) Standing
Committee on Copyright and Related Rights (SCCR) in November 2011 began formal
deliberations on a Treaty Proposal on Limitations and Exceptions for Libraries and Archives
(TLIB)10. A number of TLIB clauses if incorporated in an international WIPO treaty have the
potential to influence eBook licence agreements.

A more detailed legal analysis of e-Lending prepared by Working Group member Harald von
Hielmcrone is appended to this report (Appendix A).

Maintaining Library Principles in e-Lending
As has been noted, librarians are struggling with how to maintain core principles such as
unfettered access to information for all in the context of restricted access to eBooks and
imposed eBook licence requirements. A key challenge facing libraries in providing access to
eBooks is to arrive at licence agreements which provide sufficient reassurance to publishers
and authors that library availability of their work supports rather than undermines their
business model while at the same time permitting the library to continue its core functions
including:

 preserving works for posterity
 lending of works to library card holders
 copying of portions of works for non-infringing purposes (fair use, fair dealing)
 interlibrary lending
 providing alternate formats for the use of the print disabled

The emphasis placed on these rights in concluding contract negotiations will vary by type of
library. Each of the core functions listed above present specific concerns for publishers which
if not addressed in licence terms or conditions could result in their deciding not to make
specific titles or full lists available for library collections.

Preservation

The need to preserve our written culture is hard to deny and it will not be that
controversial for many publishers. Having said this, there may well be sensitivity over
issues such as making back-up copies, legal deposit and bypassing Technological
Protection Measures (TPMs), especially if a copy of the work in question continues to

10
http://www.ifla.org/en/node/5856
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be commercially available at a reasonable price and in an acceptable format.
Research/academic libraries will place a much greater emphasis on long term
preservation while public libraries are more likely to focus on the need to lend newly
published eBook titles rather than preservation over decades.

e-Lending

The most common constraint that is usually applied to the library lending of
downloadable eBooks is that there only be one reader at a time permitted to access a
title (the OverDrive model). While the rationale for this constraint is not understood
by and discourages library users, there is a logic to the rightsholder concerns that
unlimited library provision of eBooks while a work is commercially available and
being purchased by individuals would be detrimental to their revenues. It is harder to
justify when retail sales have ceased. A few publishers and distributors are
experimenting with other models including micro-payments per individual loan, a
pre-determined number of loans on a “volume” and delayed release to the library
market (embargo). As the number of eBook titles available and vendors supplying
them to libraries increases, libraries should have the ability to negotiate different
terms and conditions for eBook titles, either purchased individually or in aggregated
collections.

Given that the lending of an eBook is not constrained by geographic distance,
publishers have insisted that there are limits on how the library defines its users. It is
now the norm in licences for the public library lending of eBooks to be limited to card
holders who are residents of the community, property or business owners in the
community or students enrolled in an educational institution located in the
community. For school and research libraries the qualified card holders are usually
defined as students, teachers and staff of the institution. For streamed eBooks access
may be negotiated for anyone who is present in the building.

Non-Infringing Copying of a Portion of a Work

Libraries and their users have legislated rights in a number of jurisdictions to copy
portions of copyrighted work for purposes such as research and private study. Given
that most eBooks are protected by TPMs which have the capability to restrict any
copying, a licence for eBook availability would need to enable copying of agreed to
amounts of the text.

Interlibrary Lending

Publishers have noted their concern that if they sell one copy to a library it has the
potential of being available in perfect copies, instantaneously supplied to library users
anywhere in the world. Librarians understand the societal importance of individuals
having access to a work they require for formal or informal research when the work is
not available from their local library. The right to interlibrary loan an eBook could

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require both negotiated licence conditions and a technical capability which may be
beyond what many libraries have access to.

Alternate Formats for the Print Disabled

While digital does not automatically or even often equate with accessible, when
considering serving the needs of print disabled library users there is no question that
the availability of digital text works has improved access for them. However,
publisher restrictions on re-formatting digital text can impede access to the text by the
print disabled readers. An example would be restricting the functionality of text to
speech software with eBooks. Libraries will have to ensure that they and their print
disabled users can exercise whatever legal rights they may hold in order to serve the
print disabled wishing to access eBook content. Failure to do so places the library and
publisher/distributor at risk of a successful human rights challenge. In the absence of
legal rights there is a moral imperative requiring equal access.

Next Steps
As IFLA considers the development of policy guidelines for eBooks in libraries it is
inevitable that the relevant technological and business models will continue to change
rapidly. Any resulting policy will of necessity need to be at a high-level in focus. Discussions
between library associations and publishers are underway concurrently in several countries
and it appears likely that some form of national consensus on eBook licence terms and
conditions will emerge in different jurisdictions. IFLA can play a role in consolidating and
providing information on successes in securing library access to eBooks. It is clear that more
research and dialogue needs to take place in preserving core library principles in the context
of digital library collections, especially for downloadable trade eBooks.

Following on from this, it is inevitable that an international model for the inclusion of eBooks
in library collections will take time, especially in underdeveloped and developing countries.
We need to build on the trusted and enduring relationship which has existed for centuries
between publishers and libraries. Open and constructive dialogue among the stakeholders is
essential if progress is to be made in ensuring library availability of eBooks globally.
However, there are broad negative societal implications if digital content is withheld from
library collections. With this outcome all parties will suffer: authors, publishers, libraries and
especially readers. Libraries need to be prepared to draw society’s attention to the problem
and push hard to preserve our role in providing public access to information.

There clearly is a need to raise awareness in the library community of the issues inherent in
making eBooks available through library collections. There are too many references to
libraries entering into licencing contracts for digital content without understanding the terms
and conditions or in extreme circumstances even reading the licence. Library associations

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including IFLA need to focus on continuing education on licencing and legal issues
pertaining to eBooks in library collections.

No matter the nature of the deliberations, any emerging solution ensuring wide access to
eBooks through libraries must be acceptable to library users. Without their engagement and
support demonstrated through use, the outcome will not be sustainable.

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Appendix A: E-Lending – Detailed Analysis
Legal concepts

From a legal point e-Lending has nothing to do with lending. The basic legal concepts are
derived from article 6 and 8 respectively of the WIPO Copyright Treaty (WCT), adopted in
Geneva on December 20, 1996.

Article 6: Right of Distribution

(1) Authors of literary and artistic works shall enjoy the exclusive right of authorizing the
making available to the public of the original and copies of their works through sale or
other transfer of ownership.

(2) Nothing in this Treaty shall affect the freedom of Contracting Parties to determine the
conditions, if any, under which the exhaustion of the right in paragraph (1) applies after
the first sale or other transfer of ownership of the original or a copy of the work with the
authorization of the author.

Article 8: Right of Communication to the Public

Without prejudice to the provisions of Articles 11(1)(ii), 11bis(1)(i) and (ii), 11ter(1)(ii),
14(1)(ii) and 14bis(1) of the Berne Convention, authors of literary and artistic works
shall enjoy the exclusive right of authorizing any communication to the public of their
works, by wire or wireless means, including the making available to the public of their
works in such a way that members of the public may access these works from a place
and at a time individually chosen by them.

Lending

Within the conceptual system of copyright legislation lending constitutes a subgroup under
the category “distribution”. Only tangible objects can be distributed.

Lending may be defined as “making a tangible object available for use for a limited period of
time and not for direct or indirect economic or commercial advantage” As opposed to
“rental”, which is “making a tangible object available for use for a limited period of time and
for direct or indirect economic or commercial advantage”

The author of a work has the exclusive right of authorizing the making available to the public
of the original and copies of their works through sale or other transfer of ownership.

This right is normally exhausted (within a defined territory) after the first sale or other
transfer of ownership of the original or a copy of the work with the authorization of the
author.

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Because the distribution right is exhausted whoever buys the work, e.g. the book, may
distribute it further, e.g. lend it to someone else. Lending is not an exception to the
distribution right. There is no need for an exception.

The exhaustion of the author’s distribution right is the legal basis for libraries being able to
lend books to their users. This is the general rule following from WCT.11

E-Lending

Within the conceptual system of copyright legislation e-Lending constitutes a subgroup under
the category of “communication to the public or making available to the public”.

More specifically, a “communication to the public” takes place when the sender decides
when the communication takes place. This typically applies to broadcasts.

“Making available to the public” typically applies when a provider uploads a work in a
database and gives users the possibility to access the database, and thereby the works, from at
place and at a time chosen by the user.

The author (and other rights holders) has an exclusive right of authorizing any
communication to the public of their works, by wire or wireless means, including the making
available to the public of their works in such a way that members of the public may access
these works from a place and at a time individually chosen by them.

E-Lending might be defined as “making a digital object available for use for a limited period
of time and not for direct or indirect economic or commercial advantage”

In practice e-Lending is done

 Either by giving the user access to the work for a period of time, after which the
access is denied,

 Or by letting the user download a self destructive version of the work to his own PC
or reading device, so that the file is destroyed after a pre-determined period of time.

Contrary to lending, which is a form of distribution, e-Lending is an online service and not
subject to exhaustion after the first communication or making available of the work to the
public. Therefore any communication or making available to the public requires of
authorisation by the author (or other rights holders). This also applies to material (tangible)
copies of works made by a user of such a service: e.g. when works are downloaded on
reading devices.

11
EU has in 1992 issued a Directive on rental and lending ((92/100/EEC), giving authors (and other rights
holders) the exclusive right to authorize lending and rental of their works. However, Member States may
derogate from the exclusive right in respect of public lending, provided that at least authors obtain remu neration
for such lending. The effect of this is that the author’s “lending right” is in reality a right to be remunerated for
public lending undertaken by libraries.

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The need of authorisation by the author (or other rights holders) can only be avoided to the
extent that there are applicable exceptions to the Communication to the Public Right.
However, all exceptions have to pass the Three Step Test, WCT article 10 which reads:

Contracting Parties may, in their national legislation, provide for limitations of or
exceptions to the rights granted to authors of literary and artistic works under this Treaty

1) in certain special cases
2) that do not conflict with a normal exploitation of the work and
3) do not unreasonably prejudice the legitimate interests of the author.

For an exception regarding e-Lending to be included in national legislation it should be able
to pass the Three Step Test. This means that e-Lending must be restricted to “certain special
cases that do not conflict &c. ...”

Such restrictions on e-Lending will not solve the general problem libraries face vis a vis
electronic publishing and lending, and a provision for e-Lending restricted in this way will be
useless – except for certain special cases that do not conflict etc.

This means that the library’s general e-Lending activity will require a license agreement with
the author (or other rights holders).

Consequences

The perhaps most important consequence of the legal differences between lending and e-
Lending is that

1. Because of the exhaustion of the distribution right after the first sale, the library may
buy published works, e.g. books, at the bookseller and use the copies for lending to
the library’s patrons. The author (or other rights holder) cannot deny this right to the
library. In consequence, the library decides in accordance with its acquisition policy
what books to buy and use for public lending.

2. Because e-Lending is a service, the concept of exhaustion does not apply, and the
library can only acquire the digital object, the eBook or eJournal, by entering a license
agreement with the author (or other rights holders). The rights holders are free to
decide whether they want to enter a licence agreement giving access to a specific
work, and to decide on the terms for such access. The consequence of this is that the
acquisition policy may be decided by the publisher and not by the library.

That the acquisition policy of libraries may be decided by the publisher and not by the library
is unacceptable, and the challenge for the libraries is to find solutions to this problem.

For the purpose of enabling e-Lending we need licensing solutions, e.g. via agreements with
publisher’s organizations on standardized licensing terms, which enable libraries to make

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available on reasonable and fair conditions to their users all works published in electronic
formats chosen by the library.

For the purpose of preserving the cultural heritage we need legal support to collect, preserve
and make available all works published in electronic formats. This work has already started
with TLIB being presented in WIPO.

Harald von Hielmcrone

CLM Expert Resource Person

Chair, EBLIDA Expert Group on Information Law

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Ifla background paper_e-lending_0

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