And now a post by graphicpolicy.com: http://graphicpolicy.com/2015/07/20/dont-believe-the-hyperbole-theres-no-orphan-works-law-before-congress/
So they say that this isn't such a big deal after all, because there's no legislation before Congress, it's a report by the Copyright Office with SUGGESTIONS for legislation. This was how I understood it anyway, but I can see that the way I've expressed myself so far might make it seem like they were ready to pass the bill. They're not at that point. But they ARE looking to make changes to the legislation, and that's why people can contact them to let them know what they think about the changes suggested, before they take it any further.
According to what's written in the link above, you won't have to register in these private registries to maintain your copyright. But the Orphan Works is still the same thing about users not having to pay so much for using work where they haven't found the copyright owner - after making a proper effort to find them and failed.
And here is a link where techdirt.com points out other issues with the report: https://www.techdirt.com/articles/20150607/14411031264/only-copyright-office-would-fix-problem-orphan-works-doubling-down-problem-itself.shtml
So yeah, not confusing at all. Still - the Copyright Office wants artist's input on the subject, so if you want to have an impact on what might become changes to copyright laws, contacting them is a good idea anyway.
Right now, this whole topic just makes my head hurt.