I hesitate to think about the logistics, because it either makes me really sad or really stressed, but alas, here we are....
The easiest way to control capacity is for resort guests only. They know how many resorts they can keep open, they'll know how many rooms to fill, they'll know how many guests on property at any one time (give or take, ya know).
On top of that, they have to open resorts. Not only is the revenue a major thing, but for DVC points purposes, they have to open the resorts. So, for the fact that I do believe the resorts opening is a must, then I think it would be pretty difficult to make it locals-only.
And allowing resort guests AND locals in certainly won't help control capacity. And, I don't foresee a lot of locals booking rooms at the resorts.