Howard Berman, Chairman of the House Judiciary Subcommittee on Courts, the Internet and Intellectual Property, may introduce legislation about orphan works in the next few months. Berman held a Subcommittee hearing about orphan works on March 13th to gather further information. One outcome of that hearing was the need to pay special attention to the problem that photographs and other visual works may not have information that identifies copyright owners.
Read more about it at "Hearing on Promoting the Use of Orphan Works: Balancing the Interests of Copyright Owners and Users," Library Copyright Alliance statement, and "Orphan Works Are Back on Congress’s Radar Screen."