But what does it mean? What is an official recommendation by the Copyright Office - an actual license to reuse stuff? Or just a recommendation with no legal con

But what does it mean? What is an official recommendation by the Copyright Office - an actual license to reuse stuff? Or just a recommendation with no legal consequences at all? So artists are supposed to create works employing fair use, and then hope they'll get a recommendation by the Copyright Office? If yes, they can publish their work, if no, they'll have to trash it?