The bottom line is that IEEE is refusing to accept public-domain papers except from government authors. IEEE has no justification for this position. IEEE's action is a blatant attempt to maintain control over papers that would otherwise have been freely available to the public. Unfortunately, at least in this student's case, the attempt succeeded: a paper that was accepted by IEEE's scientific referees, and that would have been in the public domain without IEEE's pressure, is now part of IEEE's copyright portfolio.http://cr.yp.to/writing/ieee.html
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