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Would this work as a possible solution?
Eliminate any fees associated with the loaning of any ebook by a library. The library will simply purchase X copies from wherever and loan them out as usual.
The ebooks will be loaned to local residents first and foremost. This includes being bumped to the top of any waiting list(s).
If the ebook is not currently loaned out and is just “sitting there”, it can be loaned to a non-local borrower. If a local borrower comes along and wants the ebook and they are all loaned out, any loans to a non-local will be temporarily revoked.
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