The Office of Copyrights has issued a Report and Notice of Inquiry for public comment concerning works that users wish to exploit, when they cannot locate the copyright owners.
It is likely that the legal penalties will be limited when a copyright owner discovers that his/her copyrighted work has been exploited by someone else.
http://www.infodocket.com/2015/06/04/u-s-copyright-office-releases-report-on-orphan-works-and-mass-digitization/
This link leads to a summary, which in turn contains links to the full text of the Report and to the Notice of Inquiry upon which you may comment.
Best wishes,
Rowena Cherry
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