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With the physical resources, you have to be there in person in order to make use of it, so the local government that supports the library is seeing some sort of impact of your presence, although possibly indirectly. Plus many libraries have agreements of reciprocity with other items that cover physical items (most of these agreements predate digital stuff). If their agreements are only over the physical, and the digital can be costly (Overdrive has had rates shoot up, due to publisher issues. Many publishers don't like digital stuff at libraries, and so are pulling their stuff completely, or charging more.), a way to cut costs is to limit things to only the local residents whose tax money directly supports the library. That way, they're still abiding by their agreements with other libraries, and expenses are reduced.
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