Professional Documents
Culture Documents
Trends in Europe
Examples of Germany (Munich), UK, and France
Trends in Asia
Situations regarding FOSS in east and southeast Asia
1. Reduce costs and vendor lock--in: FOSS Reasons for FOSS Promotion by
reduces system building costs for e--gov- National and Local Government
ernment at national and local levels, Reduce costs and vendor lock-in
Efforts to make sense in government procurement
and its independency on a specific ven- through the utilizing the nature of FOSS are expected
4. Overcome the digital divide: FOSS is extremely effective for achieving comput-
erization with limited funds.
153
Reasons for FOSS Promotion by National and Local Governments
to generate and provide public services. There- TCO gap with Windows is small and debatable
fore, it is entirely natural for governments Maintenance of middleware and applications; cost of
administrative engineers
154
FOSS Government Policy and E--Government
FOSS enables the use of many unspecified vendors. By adopting FOSS, govern-
ments can expect lower dependency on specific vendors, resulting in healthy market
competition. This in turn enables governments to procure high quality systems at
a low cost.
the public sector and the difficulty of devel- China cites need to ensure national security as one reason
for promoting FOSS
oping IT experts within IT section. Con- Backdoor mechanisms cannot be hidden with FOSS
155
Reasons for FOSS Promotion by National and Local Governments
For commercial software that is developed in foreign countries, the internal imple-
mentation of software is invisible. This makes it difficult to eliminate the risk of
backdoor mechanisms that could lead to information leakage or intentional system
down--time. These kinds of security holes cannot be hidden under FOSS, which is
beneficial from the standpoint of ensuring national security.
Reliance on foreign software also hinders the development of core technologies for
national defense systems and government backbone systems. This is viewed in
some quarters as increasing the vulnerability to interference from other countries.
Using FOSS enables the domestic software industry to take on development of these
systems, which is necessary to ensuring national security. Although these views
might seem unrealistic, the Chinese government has actually cited the need to ensure
national security as one reason for deploying FOSS.
its increase as the number of software ship- Desire to avoid black boxing of infrastructure technology
late into trade deficits with various coun- China: Announced policy to restrict government procurement to
domestic software
to use FOSS to foster the development of Desire to eliminate subcontractor structure for local IT firms
156
FOSS Government Policy and E--Government
digital equipment. This makes it difficult Digital divide created by gaps in income
for the poor to obtain information and rise Low-income earners cannot obtain digital equipment
basic specifications. It also enables indi- One of the acute problems facing Southeast Asia
ware at no cost. FOSS is extremely effec- FOSS deployment expected to solve this situation
157
Trends in Europe
National governments representing Germany, Promoting FOSS in aspects of lower cost and
interoperability
UK and France
UK: going deeply into FOSS
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158
FOSS Government Policy and E--Government
lion Euros by 2002, up 28% from the pre- Estimates value of FOSS at 12 billion Euro
vious year. The main reason for the EC’s GDP in the EU
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1. Interactive public services, accessible for all, and offered on multiple platforms.
159
Trends in Europe
In addition, the EU is funding R&D projects such as the Consortium for Open Source
in the Public Administration (COSPA) and the FLOSSPOLS project. COSPA
conducts demonstration experiments for FOSS desktop deployment by the public
sector. FLOSSPOLS, which stands for Free/Libre/Open--Source Software: Policy
Support, conducts research into Free/Open--Source policy by the government sector.
In May 2004, the EU’s Interchange of Data between Administrations (IDA) Pro-
gramme issued a recommendation to the Organization for the Advancement of
Structured Information Standards, or OASIS. This recommendation calls for the
adoption of OpenOffice.org as the standard format for exchange of office documents
within the government sector.
The role of FOSS as economic factor in the EU has recently been studied under the
“Study on the Economic Impact of Open Source Software on Innovation and the
Competitiveness of the Information and Communication Technologies (ICT) Sector
in the EU”. The study found FOSS to have a strong market penetration particularly
in the public sector Europe is found to be well ahead of the rest of the world.
The total value of all FOSS having some form of quality control is estimated at
around 12 billion Euro (almost 19 billion US$). The amount of code doubles every
18 to 24 months. The Debian project alone with its 220 millionen lines of code
(LOC) accounts for more than 130,000 man years of effort or 2.6 billion Euro (4
billion US$).
The study forcasts FOSS--related services to account for a third of all IT services
and around 4% of the EU’s GDP by 2010. The opportunies for small and medium
size enterprises are expected to counter the current brain--drain towards the US.
8.2.2 Germany
Germany is at the forefront of Free/Open--Source deployment even within Europe.
In Germany, debate today centers on the approach to deploying FOSS, having moved
beyond debate about whether FOSS is to
be adopted. Germany
The situation in Germany is driven by the
Germany at forefront of FOSS deployment
nation’s history as a fertile area for FOSS Debates focused today How to deploy FOSS
Case studies
development. Germany is the base of de- Federal Ministry of Interior signs comprehensive procurement
contract for IBM/SUSE Linux machines (June 2002)
velopment for SUSE Linux (now owned by Enables low cost procurement of GNU/Linux servers
Novell), the world’s second leading GNU/Linux Contains list of replacement software and precautions for FOSS
migration, for desktop through to server environments
distribution, as well as the KDE integrat- Actual FOSS migration increasing at local government level
ed desktop environment. OpenOffice.org, Schwäbisch Hall district migrates 400 machines to GNU/Linux
(2002-2004)
160
FOSS Government Policy and E--Government
Somewhere around 2000, the German Federal Ministry of the Interior evaluated the
feasibility of deploying FOSS for administrative systems. These studies led to a
recommendation to use FOSS. The German government then entered into a com-
prehensive procurement agreement with IBM in June 2002, in an effort to promote
the use of GNU/Linux. Under the agreement, federal and regional governments can
purchase IBM PCs and servers equipped with SUSE Linux at a discounted price.
At the time, the German government cited the following reasons for entering into
the contract:
The German Federal Ministry of the Interior created guidelines in July 2003 for
FOSS migration for the public sector. These guidelines are designed to enable IT
managers in the public sector to determine the economic and technical feasibility
of deploying FOSS. IT managers can choose to continue using existing commercial
software, or use commercial software and FOSS side--by--side. The third option is
to migrate fully to FOSS.
More than 500 institutions in the German government sector are reported to have
started FOSS deployment. The list of adopters includes the German Federal Anti--
Trust Office, Munich municipal government and Federal Ministry of the Interior. In
particular, actual FOSS migration is said to be increasing at the local government
level.
161
Trends in Europe
an across--the--board migration from Win- migration for 14,000 PCs used by 16,000 users (May
2003)
but also for desktops PCs. Microsoft proposal: $36.6 million, later cut to $23.7 million
Soft migration
Emulators also to be
Jun. 2004 -
Aug. 2004
Sep, 2004
Linux migration project ` LiMux' began
project stopped bacause of patent issue
project restarted
used initially
used by the Munich government. The cost (VMWare, etc.)
An Introduction to Free/Open-Source Software
Jan. 2005 trial migration started
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162
FOSS Government Policy and E--Government
entitled Open Source Software Use Within FOSS Policy recommends government procurement of
FOSS (July 2002)
UK Government, was later revised in 2004. Office of Government Commerce (OGC) decides to
deploy GNU/Linux for large-scale system (April 2003)
The following key decisions are described OGC issues report on FOSS trials (October 2004)
163
Trends in Europe
2. UK Government will only use products for interoperability that support open
standards and specifications in all future IT developments.
5. Publicly funded R&D projects which aim to produce software outputs shall spec-
ify a proposed software exploitation route at the start of the project. At the
completion of the project, the software shall be exploited either commercially or
within an academic community or as FOSS.
In April 2003, OGC announced plans to deploy GNU/Linux for a new online pro-
curement system to be used by all government departments. The online procurement
system represents the first--ever GNU/Linux deployment for a large--scale backbone
system used by the UK government. The procurement system has been online since
2004. OGC also assists FOSS deployment in other parts of the public sector, such
as helping Powys County Council to integrate OpenLDAP for authorization. Other
projects include the deployment of a FOSS--based document administration system
by the Central Scotland Police.
OGC conducted FOSS trials in 2004 that included desktops used by multiple central
government departments. Sun desktops running GNU/Linux were deployed and
evaluated as practical desktop alternatives. The trials led OGC to conclude that
cost reductions could be anticipated from FOSS deployment. OGC also determined
that there were no major issues in terms of interoperability with existing Windows
environments.
However, the UK government sector overall has not yet to undertake serious deploy-
ment of FOSS, despite taking the neutral stance of studying FOSS as one possible
alternative.
164
FOSS Government Policy and E--Government
8.2.6 France
France, like Germany, is strongly promoting FOSS. Legislation for preferential treat-
ment of FOSS in government procurement was considered as early as 2000, although
it was rejected. The term FOSS is not used
extensively in France. The French use the France
term Logiciel Libre, from the French word
France: Independent approach to FOSS
dom, which has some basis in truth. promote FOSS (July 2002)
165
Trends in the United States
Foundation (NSF) and the Defense Ad- Although US Federal government has No Policy,
actual FOSS adoption are increasing
contributions to FOSS. The Free Software The policy stated that new application should adhere
to open standard and FOSS
movement that led to FOSS was started They have FOSS-based application to be developed
under the new policy
ment lists. Unlike commercial products, FOSS already deployed by 250 government sector institutions
(May 2002)
there has been no active effort to get FOSS PITAC recommends FOSS for supercomputers (September 2000);
MITRE recommends FOSS for Defense Department (October
2002)
products listed for federal procurement. How- FOSS inclusion in government procurement
standards
ever, the real reason for this situation is Defense Department issues memo containing guidelines for
FOSS acquisition (June 2003)
166
FOSS Government Policy and E--Government
167
Trends in the United States
later announced in February 2005 that it would seek to acquire CC--EAL4+, which
is the highest level of certification available for software products.
These efforts were successful in motivating the Department of Defense to issue a
memo in June 2003 detailing guidelines for FOSS acquisition. The development
enables FOSS to compete on the same footing with commercial software for the first
time in government sector procurement.
ed. Legislation that would have simply FOSS deployment, which were rejected or shelved
required equal treatment of FOSS along- Policy later toned down to consider all possible alternatives
proprietary, open source, and public sector code sharing
side commercial software was introduced in determining best value solutions (January 2004)
in 2003 in Oregon and Texas. However, Start of collaborative project to develop FOSS for e-
government, led by Massachusetts State (June 2004)
these proposals were met with strong op- The Government Open Code Collaborative
168
FOSS Government Policy and E--Government
the state’s many legacy systems was also Cost-cutting move necessitated by financial difficulties due to drop
in state tax revenues
a factor. The IT committee later evolved CIO meeting proposes policy to deploy open standards and
Free/Open-Source
into a Massachusetts CIO “Kitchen Cabi- SUSE Linux running in virtual machine on mainframe
net” made up of CIOs from state agencies, GOCC (Government Open Code Collaborative)
Launched in December 2003
which met to prioritize issues faced by the Framework for sharing source code with other state governments
At a CIO meeting in September 2003, an 11 state agencies involved, from eight states
169
Trends in Asia
the Philippines. The first Asia OSS Sym- China, Taiwan and Koria
posium was held in 2003 to promote FOSS between Japan, China and Korea
Southeast Asia
in Asia and is now held every six months Thailand, Malaysia, Philippines and Vietnam
as a regular event.
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Flag Linux, Yangfan Linux and Qihang Lin- Hosts many FOSS international conferences
South Korea
ux. Red Flag Linux has matured into a Flood of GNU/Linux distributors and ongoing market
realignment
distribution. The distribution is based on South Korean government rapidly deploying FOSS
An Introduction to Free/Open-Source Software
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170
FOSS Government Policy and E--Government
most of these distributions today. The South Korean government is actively intro-
ducing policies for FOSS deployment, such as mandatory consideration for FOSS in
government procurement.
Forum in Seoul in December 2004. The International collaborative project by Japan, China and
ing groups focusing on the following ar- 3rd Forum: Seoul, Korea (December 2004)
ment (WG1), Human Resource Develop- Resource Development (WG2) and Study on Standardization &
Certification (WG3)
171
Trends in Asia
Southeast Asia:
Thailand and Malaysia
Thailand
Leading FOSS nation in Southeast Asia
Malaysia
Promoting FOSS through national government and
various government organizations
8.4.3.1 Thailand
Thailand had a relatively early start in promoting FOSS, compared to other na-
tions in Southeast Asia. The National Electronics and Computer Technology Cen-
ter (NECTEC) is the core national government institution that promotes FOSS.
NECTEC implements projects to develop Thai language support for GNU/Linux
and OpenOffice.org such as Linux Thai Language Extension (TLE). NECTEC is al-
so involved in a wide range of initiatives designed to encourage the spread of FOSS.
These activities include national symposiums and international collaboration with
neighboring countries.
The Thai government announced the ICT PC Project in April 2003. The project
was designed to accelerate IT advancement in Thailand through sales of low cost
PCs preinstalled with GNU/Linux. The initiative, which is now called the People’s
PC Project, has succeeded in propagating the spread of PCs through sales of 100,000
machines. The program has also had a major impact in terms of driving down the
cost of hardware and related software in Thailand.
8.4.3.2 Malaysia
Malaysia is also active in implementing government policies to promote FOSS, cen-
tering on the national government and various government organizations. Lead-
ing organizations that promote FOSS include the Malaysian Institute of Microelec-
tronic Systems (MIMOS). MIMOS has established the Asian Open Source Center
(ASIAOSC). Also prominent in promoting FOSS is the Malaysian Administrative
Modernization and Management Planning Unit (MAMPU). MAMPU announced a
172
FOSS Government Policy and E--Government
Public Sector Open Source Master Plan in July 2004. The Master Plan led to the
establishment of the Open Source Competency Centre (OSCC), which promotes the
spread of FOSS in the public sector.
8.4.3.3 Philippines
Rampant software piracy is a problem in Southeast Asia. FOSS is viewed as an
ideal solution to software piracy, since the notion of illegal copying does not ex-
ist under FOSS. The anti--piracy aspect of
FOSS is one of the driving factors behind Southeast Asia:
Philippines and Vietnam
the promotion of FOSS in Southeast Asia
Philippines
nations. In the Philippines, the national Anti-piracy a driving factor for promoting FOSS
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8.4.3.4 Vietnam
The Vietnamese government showed little interest in FOSS around the time of the
first Asia OSS Symposium in 2003. Initiatives to promote FOSS in Vietnam have
rapidly accelerated since that time, sparked by the hosting of the 3rd Asia OSS
Symposium in Hanoi in March 2004.
Just prior to the 3rd Asia OSS Symposium, the Vietnamese government approved a
FOSS master plan called Applying and Developing Open Source Software in Viet-
nam for the 2004--2008 Period. Vietnam is currently implementing various initia-
tives under the master plan. These initiatives include FOSS training courses and
conferences on FOSS migration.
173
Trends in National and Local Japanese Government
2003. Six events have been held since then Cooperation for Computerization (CICC), Japan and
organizations in host nations
3rd Symposium:
Singapore (November 2003)
6th Symposium:
Beijing, China (March 2005)
ganizations related to METI and MIC. This FOSS policies in e-government by Ministry of Internal
Affairs and Communication (MIC)
section also describes the trend in FOSS Study group concerning Secure OS
e--municipality for local residents. Case studies: FOSS procurement by local governments
government
174
FOSS Government Policy and E--Government
1. The current massive trade deficit in soft- Loss of technical capabilities from erosion of Japanese
infrastructure software
2. The loss of technical capabilities from Wide overview of major FOSS, FOSS licensing and business
models using FOSS
the erosion of Japanese infrastructure Funds development related to perceived areas of FOSS weakness
Enterprise technologies
Desktops
175
Trends in National and Local Japanese Government
software imports into Japan. The majority of the Japanese market for infrastruc-
ture software consists of foreign software. Infrastructure software is essential to
running application software. It also functions as the building blocks for IT. Ex-
cessive dependency on foreign infrastructure software inevitably leads to a loss of
technical capabilities. However, independent development of operating systems and
middleware is risky and requires a significant investment. Consequently, commit-
ment to FOSS development can be viewed as a way to maintain Japan’s technical
capabilities.
176
FOSS Government Policy and E--Government
further barrier is the widespread use of proprietary vendor formats that extend
HTML and other standardized specifications.
Source code released without charge; local governments free to modify or use
software
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177
Trends in National and Local Japanese Government
support contract is stressed as being vital to procurement of FOSS. The report also
notes that additional software may be required if a higher level of security is needed,
when FOSS alone may be inadequate.
is widely deployed by municipalities such FOSS operating environments using Java application packages
Urayasu City
as Urayasu City, where there is an empha- Portal sites for local residents
FOSS is also used extensively for Web-- Deployment for internal systems
FOSS servers widely deployed as Web servers, mail servers, etc.
based portal sites aimed at local residents FOSS deployment for desktops
Sumoto City
and tourists. Prefectures such as Yamanashi, GNU/Linux servers deployed as gateways to local government WANs
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178
FOSS Government Policy and E--Government
curement side. Consequently, there is too FOSS deployment expected to enable participation in systems procurement by
small- and medium-sized local vendors that lack technology for specific
products, leading to promotion of local industry
much emphasis on established suppliers lead- Tendency to emphasize established suppliers, due to difficulty of separating
systems design, development and operations
centralized major vendors. Due to the in- Switch to long-term assignments for personnel with highly specialized
knowledge
cult for local governments to separate the Transparency of deployment process ensured
179
Systems Procurement by Local Government and Issues for Local IT Firms
quotations for development man--hours and costs. The end result is that local gov-
ernments tend to emphasize established suppliers and give priority to major vendors
during procurement.
FOSS is viewed as offering a way to solve the above issues faced by local governments.
FOSS deployment is expected to enable small-- and medium--sized local vendors to
participate in systems procurement, which serves to promote local industry. Local
vendors can participate in systems building even if they do not possess technology
for specified software sold by major vendors.
Local government procurement is hampered by an inability to evaluate the contents
of bids based on functionality and performance. A further problem is the inability
of the procurement side to estimate man--hours and costs. These problems are
caused by the personnel policies of local governments. IT systems personnel are
regularly rotated to new positions, which tends to result in a lack of specialized
knowledge among IT systems personnel. To address this issue, local governments
must switch to long--term assignments for employees that possess highly specialized
IT knowledge.
FOSS deployment is also useful to local governments from the standpoint of imple-
menting resident services and practicing information disclosure. The open nature
of FOSS enables bottom--up deployment of systems according to the needs of each
situation, without being limited to existing systems. Using FOSS also ensures trans-
parency in the deployment process.
circle prevents systems procurement from LGs may limit bidding to established suppliers
Specifications for a public tender are left up to vendors
Blanket contracts that cover from defining
materials of Nagasaki Prefecture
Local governments tend to be dependent LGs are forced to accept expensive systems that suit the needs
of vendors
to a number of factors. For example, local the increasing use of shared e-municipality systems
180
FOSS Government Policy and E--Government
responsibility of the procurement side. Local governments may issue vague specifi-
cations that tend to result in blanket contracts that cover everything from defining
requirements through to systems operations. This leads to a situation where ad-
ditional development is automatically awarded to the same vendor. All of these
factors prevent local governments from directly awarding contracts to local IT ven-
dors. Instead, local governments are forced to accept expensive systems that suit
the needs of vendors.
Under these circumstances, local IT firms are forced to participate in government
projects as subcontractors to major vendors. The subcontractor role tends to pre-
vent local IT firms from developing the skill set needed for project management.
Skills for project management involve everything from drafting proposals to per-
forming quality control and executing tasks. Venture firms are not even qualified to
participate in bidding due to the requirement for established suppliers. IT subcon-
tractors at the bottom of the tiered subcontractor structure tend to find it difficult
to keep resources to learn new technology.
The trend toward a tiered subcontractor structure with major vendors at the top
is accelerating due to the shortcomings of local IT vendors. These firms lack not
just experience but also technology and resources. The issue is compounded by the
growing scale of e--municipality systems and the increasing use of shared modules
for e--municipality.
Several prefectures in Japan are deploying FOSS in an attempt to break out of this
vicious cycle. These initiatives are aimed at achieving an ideal situation in which
municipalities are supported by local IT firms. Nagasaki Prefecture and Hokkaido
are implementing unique and ground--breaking initiatives not found elsewhere in
Japan. Their examples provide insight into how FOSS can be effectively utilized by
local governments.
181
Systems Procurement by Local Government and Issues for Local IT Firms
Development
Bidding & Test Spec.
the prefectural government was unable to Local firms Order
C system
Testing
Development
Test Specification Development Spec.
build its own expertise, which led to de- Test Spec. Testing
pendency also applied to procurement of Many local firms can participate, since contracts are separated into small sizes
182
FOSS Government Policy and E--Government
183
Education and FOSS
the motives of vendors involved in the digi- Fundamental idea to use IT equipment in the field of
education
illustrated in the section 9.3 and the sig- Case Study: FOSS trials in education
Some trial projects to use FOSS in educational field
Policy Program 2004, which was issued in Advancement of Human Resource Development and
the Promotion of Education and Learning
1:1 ratio of PCs to students in school com- Except for Information Study curriculum in upper
secondary schools
184
FOSS Government Policy and E--Government
185
Education and FOSS
teachers who participated in these trials commented that they were able to learn
new things from the students.
tions under the guise of academic pricing. Pretext: For cash-strapped students
The main justification for academic pricing Issues with Information Study textbooks
Examples used to illustrate how applications work
is that it is designed to keep prices down Pros and cons of describing specific applications
186
FOSS Government Policy and E--Government
In the first trial, 300 GNU/Linux desk- IPA-sponsored field tests of FOSS desktops in educational
lower secondary schools in Tsukuba City 300 machines deployed and used by 3,000 students
Knoppix trials
and Gifu Prefecture. The machines were Knoppix used by 800 students at eight schools across Japan
(elementary/upper secondary schools, one technical school and
several universities)
used by 3,000 students. In the second trial, Norways Skolelinux project (2003)
Skolelinux deployed and evaluated at four elementary and lower
http://www.skolelinux.org/portal/documentation/reports/
across Japan. Participating schools ranged UKs Open Source Software in Schools project (2004)
FOSS deployed and evaluated at 15 elementary and lower
secondary schools in UK
187