Legal restrictions and the digital library - is digital access to knowledge achievable?

Why has the focus been on Orphan Works instead of trying to find the solution to the conundrum of copyright in the 21st Century; i.e. how to enable mass usage of copyright protected works in library corpus etc.? The real issue is how to clear the rights for large numbers of works irrespective of whether they are orphan or not. The problem is not the Orphan Works as such but rather the Outsiders [non members of Collective Management Organizations as well as Orphan Works]. The commercial and the cultural sector desire to make such work available. But traditional licensing solutions do not provide the means for such enterprises France, Sweden and UK has presented proposals such as Extended Collective Licensing (ECL). ECL enables mass usage of copyright protected works including Outsiders. EU and national governments encourage national libraries to enter into Public Private Partnerships. These efforts are extremely costly - a private partner is in many cases a prerequisite. Both the library and the private partner will need a license. One possible solution could be the ECL. I.E. - There is a need for flexible ECL agreements apt to the 21st Century enabling business, creators and consumers to use copyright protected works. Is that possible? Could ECL be the solution? If it is, effective collective rights management systems are of the utmost importance for the development of the Digital Library in the European Union but also in the US, and I would argue on a global level. In addition to copyright another legal and complex issue is integrity although not much focus in general has been on the subject so far. Given all these legal obstacles, is Digital Access to knowledge achievable?