A complete restructuring of the Copyright Office's oversight and appointment processes. v2 significantly expands the provisions for a separate Inspector General for the Copyright Office, detailing its structure and powers, and adds transition provisions for the Copyright Office's separation from the Library of Congress. Additionally, v2 introduces a standard severability clause.
Legislative Branch Agencies Clarification Act
- Sponsor
- Rep. Griffith, H. Morgan [R-VA-9]
- Committees
- Committee on House Administration (primary)
- Last action
- Jun 9, 2026
Bottom line
H.R. 6028 centralizes control over key legislative branch agencies within Congress and grants the Copyright Office greater independence, aiming to enhance accountability and operational efficiency.
What it actually does
This bill significantly reforms the appointment and removal processes for the Librarian of Congress and the Director of the Government Publishing Office, shifting authority from the President and Senate to congressional leadership. It also separates the Copyright Office from the Library of Congress, establishing it as an independent agency with its own Inspector General, and applies the Congressional Accountability Act to the Government Publishing Office, alongside creating a new human capital management system for the GPO.
Proponents argue
Supporters argue that these changes will enhance congressional oversight, streamline operations, and ensure that critical legislative branch functions are managed by individuals directly accountable to Congress, rather than being subject to executive branch influence. They also contend that making the Copyright Office independent will improve its responsiveness and focus on intellectual property matters, while GPO reforms will modernize its personnel practices.
Opponents contend
Critics might argue that shifting appointment and removal power to congressional leadership could politicize these roles, potentially undermining the non-partisan nature of institutions like the Library of Congress and the Government Publishing Office. Concerns could also be raised about the potential for increased administrative overhead with the Copyright Office's separation and the unique human capital system for GPO.
The bill is moderately complex, requiring careful reading to understand the numerous statutory amendments, but the structure is generally logical.
Section 2(a)
Librarian of Congress Appointment and Removal Process
This provision changes how the Librarian of Congress is appointed and removed. Instead of being appointed by the President with Senate advice and consent, the Librarian will now be appointed by a 'commission' consisting of congressional oversight committee leadership and House and Senate leadership, based on a recommendation of three individuals from the oversight committee leadership. Removal can occur at any time upon a majority vote of the House and Senate leadership.
Supporters argue
Supporters argue this change enhances congressional oversight and ensures the Librarian of Congress is directly accountable to the legislative branch, aligning the role more closely with its function as a legislative branch agency.
Critics contend
Critics might contend that this shift could politicize the role of the Librarian of Congress, potentially compromising the non-partisan nature and intellectual independence traditionally associated with the position.
Tradeoffs
The provision balances the desire for direct congressional accountability with concerns about maintaining the non-political character and intellectual independence of a key cultural and informational institution.
Section 3
Establishment of Deputy Librarian of Congress
This section formally establishes the position of Deputy Librarian of Congress. The Librarian is required to appoint a suitable individual within 120 days of their own appointment or a vacancy in the Deputy position. If the Librarian fails to do so, congressional oversight committee leadership will recommend an individual, who can then be appointed by a majority vote of House and Senate leadership. The Deputy Librarian will serve as Acting Librarian during absences or vacancies.
Section 4(a)
Director of the Government Publishing Office Appointment and Removal
Similar to the Librarian of Congress, this provision changes the appointment and removal process for the Director of the Government Publishing Office (GPO). The Director will now be appointed by a congressional 'commission' (oversight committee leadership + House/Senate leadership) from a list of three individuals recommended by the oversight committee leadership. Removal can occur at any time upon a majority vote of the House and Senate leadership.
Section 5
Deputy Director of the Government Publishing Office
This section amends Title 44 to formalize the position of Deputy Director of the GPO. The Director is required to appoint a Deputy within 120 days of their own appointment or a vacancy. If the Director fails to make an appointment, the oversight committee leadership will recommend an individual, who can then be appointed by a majority vote of House and Senate leadership. The Deputy Director is responsible for supervising GPO buildings and other duties, and acts as Director during absences or vacancies.
Section 6(a)
Copyright Office Independence from Library of Congress
This provision removes the supervisory authority of the Library of Congress over the Copyright Office. It amends numerous sections of Title 17, United States Code, to replace references to the 'Librarian of Congress' with the 'Register of Copyrights' in matters related to copyright administration, regulations, and royalty judges. This effectively establishes the Copyright Office as an independent entity separate from the Library of Congress.
Section 6(b)
Register of Copyrights Qualifications and Term of Office
This provision amends Title 17 to specify qualifications for the Register of Copyrights, requiring the individual to be a U.S. citizen with a background and experience in copyright law. It also establishes a fixed term of 10 years for the Register, with eligibility for reappointment for one or more additional 5-year terms. If appointed to fill a vacancy, the Register serves the remainder of the predecessor's term.
Section 6(c)
Establishment of Inspector General of the Copyright Office
This provision establishes an independent Office of Inspector General (OIG) within the Copyright Office. The Inspector General (IG) is appointed by the Register of Copyrights based on integrity and demonstrated ability in relevant fields, and reports to the Register but has independence in conducting audits and investigations. The IG can be removed by the Register with 30 days' notice to Congress. The OIG is granted law enforcement authority for its special agents, including arrest and search warrant powers, subject to strict certification and oversight requirements.
Section 7
Application of Congressional Accountability Act to GPO
This provision amends the Congressional Accountability Act of 1995 (CAA) to include the Government Publishing Office (GPO) as an 'employing office' under the Act. This means GPO employees will now be covered by the same workplace protections and rights as other legislative branch employees, including those related to labor standards, civil rights, and occupational safety and health. Conforming amendments remove GPO from certain provisions of Title 5 that apply to Executive agencies.
Section 8
Human Capital Management System for the Government Publishing Office
This provision requires the Director of the GPO to establish and maintain a human capital management system. This system must incorporate merit system principles, prohibit prohibited personnel practices and political activity (as defined in Title 5), and ensure appointments and promotions are based solely on merit. Crucially, the system is to be established 'without regard to the provisions of title 5 governing appointments and other personnel actions in the competitive service.' Regulations for the system require public comment and approval from the Joint Committee on Printing.
Section 9
Update to Government Printing Requirements
This provision amends Section 501 of Title 44, United States Code, changing the language from stating that the GPO 'shall perform' printing, binding, blank-book work, and publishing services for Congress and the Executive/Judicial branches, to stating that the GPO 'may perform' these services. This change makes GPO's role in providing these services permissive rather than mandatory.
These subsections clarify that the Librarian of Congress and the Director of the Government Publishing Office, respectively, 'shall not be considered to serve under a political appointment' for purposes of specific appropriations acts (e.g., Financial Services and General Government Appropriations Act, 2024, section 747).
Section 2(b) and Section 4(b)
Why it matters:This is standard legislative practice to ensure clarity regarding the classification of these roles under existing federal pay and ethics laws, particularly after changes to their appointment mechanisms.
Case for: Proponents would argue this ensures these positions remain non-political career roles, insulating them from certain political pressures and ensuring continuity of expertise, despite the shift in appointment authority to congressional leadership.
Case against: Critics might argue that if congressional leadership has direct appointment and removal power, classifying these roles as non-political for all purposes might be a legal distinction that doesn't fully reflect the practical political realities of their oversight.
Estimated impact: Clarifies the employment status and benefits eligibility for the Librarian of Congress and GPO Director, potentially impacting their compensation and ethical obligations.
This subsection adds language to Title 17, Section 701(a), stating that 'Any officer appointed by an acting Register of Copyrights, including a Copyright Royalty Judge, shall be an acting officer, and may be removed from office at any time by an individual serving in the office of Register of Copyrights pursuant to an appointment by the President, by and with the advice and consent of the Senate.'
Section 6(d)
Why it matters:This is a standard administrative safeguard to prevent temporary or acting officials from making permanent appointments that could circumvent the formal, constitutionally prescribed appointment processes for full-term officers.
Case for: Proponents would argue this ensures proper governance and prevents acting officials from overstepping their temporary authority, maintaining the integrity of the appointment process for key positions.
Case against: No specific opposition is typically raised against such administrative safeguards, as they are generally seen as good governance practices.
Estimated impact: Ensures that appointments made by temporary leadership within the Copyright Office are themselves temporary, preventing long-term impacts from short-term appointments.
This subsection outlines transition provisions for the separation of the Copyright Office from the Library of Congress, covering the period from enactment until September 30, 2029. It allows for agreements to transfer appropriated amounts between the Register of Copyrights and the Librarian of Congress and states that federal personnel laws apply to Copyright Office personnel as they do to the Library of Congress, with appointments based solely on fitness.
Section 6(g)
Why it matters:Transition provisions are often placed at the end of sections or bills as they deal with the mechanics of change rather than the core policy, but they are vital for effective implementation.
Case for: Proponents would argue these provisions are essential for a smooth and orderly separation of the Copyright Office, ensuring continuity of operations and proper resource allocation during the transition.
Case against: Critics might point to the extended transition period (until 2029) as an indication of the complexity and potential for disruption, suggesting the separation might be more challenging than anticipated.
Estimated impact: Facilitates the administrative and financial separation of the Copyright Office, ensuring personnel and funding continuity during a multi-year transition.
The new human capital management system for the Government Publishing Office (GPO) 'shall be established without regard to the provisions of title 5 governing appointments and other personnel actions in the competitive service.'
Section 8(b)(5)
Why it matters:This phrasing is technical and common in legislation granting agencies unique personnel authorities, but its implications for GPO employees and federal employment standards are significant and could be easily overlooked by a non-expert.
Case for: Proponents argue this provides GPO with the necessary flexibility to innovate its workforce management, attract specialized talent, and operate more efficiently without the constraints of a one-size-fits-all federal competitive service system.
Case against: Critics might argue that this exemption could lead to a less transparent or less equitable hiring and promotion process compared to the competitive service, potentially undermining merit principles or creating a two-tiered system for federal employees.
Estimated impact: Grants the GPO significant autonomy in its hiring, promotion, and other personnel actions, potentially creating a distinct employment environment for its workforce.