Paying for "Access"

When does a "news" photographer become a "commercial" photographer? Does an individual have the right to control the commercial usage of their image? Does a school have the authority to restrict who can and who can't profit, commercially, from a student's image?

In several states this issue has come up over the last few years, and now someone is proposing that newspaper pay a "token" amount to public school athletic associations to be able to resell published images.

It's a loaded question, but what do you think?