Presumably because the copyright holders are not willing to allow them to do so. Google doesn't decide these things on their own, of course. Now, why wouldn't

Presumably because the copyright holders are not willing to allow them to do so. Google doesn't decide these things on their own, of course. Now, why wouldn't the original copyright holder waive the rights? I'm guessing that, since the title seems to have been published by a local government, for purely bureaucratic reasons rather than ones of ideology. Are there really no other libraries that have it? I'd be shocked if it's not in the Library of Congress, the British Library, or Widener.