This again is a concern of photographers, in terms of clarity about the use of photographs they have sold. We have heard from photographers that someone might get a photograph for a personal purpose but end up distributing it very widely, perhaps not for profit, so it would be non-commercial, yet it would still have an effect on their enjoyment of the photograph or their ability to reproduce it and make a dollar.
That's what they're looking for in this. I'd like to hear from the officials what they feel this would do and what problems they see with it. Apparently they don't favour it.