Carl,
The real question is "who owns the negatives and photo copy rights?" The
owner of the negatives and/or the artist who shot the photos legally controls
who can use the photos, how they are cited, and the cost of said use.
This is an interesting question because local historical societies often
sell use-rights to pictures they do not actually own. For example, the San Diego
Historical Society charges $35 to obtain copies of photographs (and another
$45 for publishing) shot by the United States Army Corps of Engineers to
supplement letter reports on construction progress of U.S. Army Fort Rosecrans
(1902-1950s). While they can sell copies of their own prints, the negatives and
ownership of use-rights is the federal government and not their exclusive
property.
Ron May
Legacy 106, Inc.