Training the Machine, Testing the Treaty: Generative AI and the Limits of Cross-Border Governance

 Isharth Kumar
Isharth Kumar
(Intern) Policy & Advocacy, CyberPeace
PUBLISHED ON
Oct 3, 2026
10

Introduction

Somewhere right now, a model is reading a library. It does not read like you or I, savouring a good line or skipping to the end. It does not copy, clean and convert text into numbers at the scale that a human reader could. The copyright questions these models raise are not new, but they are new in scale, and they implicate a legal order that prizes borders. A book written in Lagos can be replicated on a server in Virginia, used to train a model sold in Berlin. Whose laws apply? The honest answer is: we don't know.

A Treaty Written Before Computers

The Berne Convention is one of the most important international agreements on copyright, with over 180 countries being party to it. According to Article 9(1) of the Berne Convention, authors have the exclusive right to allow or prohibit the reproduction of their works in any form or way. Article 9(2) provides that certain countries may implement exceptions to the rights granted by the convention, as long as they are consistent with the three-step test. More specifically, a national law exception should be confined to a certain category of works, not prejudice the work’s normal use, and not unreasonably prejudice the rights of the author.

This explains how the Berne Convention could apply to copyright protection for AI. Developers of such technology often argue that since the output of a given model rarely resembles anything learned from the examples provided, there is no copying occurring. However, the Agreed Statements of the WIPO Copyright Treaty provide that the reproduction of a protected item in digital format also constitutes a reproduction. Therefore, if a work is used to train a model, this can be considered a reproduction, and the question then emerges whether a national exception applies.

Three Jurisdictions, Three Answers

Countries have responded in different ways to that question. The United States draws on its fair use doctrine, a flexible, four-factor test that was never intended for machine learning but dominates AI-related disputes anyway. Japan’s Article 30-4 permits uses of works for the purpose of data analysis where the use is not for the enjoyment of the work’s expression, which captures a lot of what training entails. And the European Union’s approach falls somewhere in the middle: its text and data mining rules allow mining of lawfully accessible works, but rightsholders can specify in a machine-readable manner that they do not want their works mined, and developers are required to seek permission.

A recent roundtable from the Columbia Undergraduate Law Review argues that the EU model fits the three-step test best because the opt-out keeps a licensing market alive and gives authors control before their work is used rather than after. It argues that broad US fair use and Japan's provision both struggle at the second and third steps, since they can undercut a foreseeable licensing market. That is one scholarly view and not settled law. The EU system also has its own weak spot: an opt-out only protects authors who know it exists and have the technical means to use it.

Bartz v. Anthropic in Brief

Bartz v. Anthropic is the case that puts these debates in front of a judge. Three authors, including Andrea Bartz, Charles Graeber and Kirk Wallace Johnson, filed a lawsuit against the Anthropic company for using part of their works to create the central library used by Claude and to train the models used in its creation. In addition, in June 2025, Judge William Alsup approved the separation of the case, considering each instance of use separately.

On training, he granted summary judgement for Anthropic, holding the use was fair and describing it as exceedingly transformative. He compared it to a reader who studies great writing in order to produce something new. It mattered that the authors did not allege Claude's outputs reproduced their books, so the case turned on inputs alone. He also held that buying print books and scanning them into digital copies was fair use, since it only changed the format of copies Anthropic already owned. But he refused to excuse the more than seven million pirated books Anthropic downloaded to build a permanent library. Building that library from pirated copies, he found, was its own use and not a transformative one, and that part was set for trial.

Two observations are worth making in relation to those thinking across borders. First, the court's assumption that there might be a market for training licences, but its observation that this is not a market which the Copyright Act entitles authors to control, is quite inconsistent with Berne's concern for normal exploitation. Moreover, the order makes no reference to Berne at all, bearing out the observation that the US courts apply the domestic statute and not the treaty.

The story did not end there. Anthropic agreed to a $1.5 billion class settlement covering roughly 482,000 works, and the court granted final approval on 20 July 2026. It resolves claims about past acquisition and copying, so the training ruling remains a trial court's view rather than binding precedent.

Where Borders Break the System

The deeper trouble is that none of this travels well. Berne is not self-executing in the United States, so judges apply the domestic statute, and nobody is required to ask whether a fair use ruling passes the three-step test. Meanwhile, training can happen in one country, on work from dozens of others, for a product used everywhere. The same book might be freely usable in Tokyo, subject to an opt-out in Paris and defended as fair use in San Francisco.

The roundtable suggests one way forward: a new WIPO special agreement, along the lines of the WIPO Copyright Treaty, in response to the internet. It would provide guidance on the application of the three-step test to training, regard licensing markets as an ordinary part of exploitation, and require minimum standards for reservations of rights and compensation. There is one major potential obstacle: many of the most influential AI companies are based in the US, which has a record of opposing international obligations that impinge on fair use. A deal would apply only to the extent that it is not controlled by the US, where most of the training takes place. Market forces, in the form of the so-called Brussels effect, may prove more influential than negotiations at WIPO.

Conclusion

Bartz’s analysis illustrates the importance of characterising a specific use at the level of a particular court. While the former had been viewed as an activity and the latter as an acquisition, the distinction between the use of a work and its acquisition appears more likely to transcend borders than the concept of fair use. Berne was designed to create a common ground for authors. Whether this convention would be able to fulfil its function in the era of generative AI depends on the willingness of nations to adopt a joint understanding of what constitutes its foundations for machines.

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PUBLISHED ON
Oct 3, 2026
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