How is this possible when the relative size of the Access Copyright repertoire keeps growing?
There are two reasons. First, Section 20 of the model licence makes it clear that it only kicks in if the use of the work does not otherwise fall within an exception under the Copyright Act or is subject to alternate licensing arrangement, such as database site licences or open access. As I argued in my post on why universities should not sign the licence, these alternatives represent a growing percentage of copying that takes place within universities. Moreover, once Bill C-11 becomes law, the percentage will grow further as the education-specific exceptions take effect.