Framework for Successful Open Source Software
Implementation in the Malaysian Public Sector
Adnan Hamid, Nasuha Lee Abdullah, Rosnah Idrus
School of Computer Sciences
Universiti Sains Malaysia
Penang, Malaysia
adnanh@usm.my; nasuha@usm.my; irosnah@usm.my
Abstract - This research is a study on the development of a
framework for successful Open Source Software (OSS)
implementation in the Malaysian Public Sector. A preliminary
study was done to explore the state of OSS implementation
among government agencies since the launch of the Malaysian
Public Sector OSS Master Plan on July 16, 2004. Semi-structured
face-to-face interviews using open-ended questions were
conducted with IT managers and IT officers in the Northern
Region of Peninsular Malaysia. The preliminary study aimed at
investigating the usage of OSS and proprietary software, the level
of OSS utilisation, the level of OSS knowledge and training of
ICT and non-ICT staff, software development and acquisition
model, internal OSS manpower capabilities and skills, the user's
perception of the advantages of OSS, the user's perception of the
risks of OSS, and the problems or barriers in OSS
implementation. The results of interviews show that there are
many problems or barriers in OSS implementation, e.g. lack of
internal OSS expertise, lack of OSS policy, and lack of top
management support. Therefore, this study will test the
hypotheses on the success factors to OSS implementation in the
public sector and to propose a framework for successful OSS
implementation in the Malaysian Public Sector. A quantitative
approach using survey method via questionnaire will be
performed to answer the research question where simple random
sampling will be used. The target respondents are the IT
managers and IT officers among the sampling frame of 192
public sector agencies in Malaysia that have successfully
implemented at least three OSS solution areas.
Keywords- Open Source Software (OSS); Malaysian Public Sector
OSS Master Plan; successful OSS implementation; simple random
sampling; OSS solution areas
I. INTRODUCTION
The success in the implementation of OSS in the public
sector can stimulate the country's economic growth especially
in the software industry. Public sector can independently do all
the customisations without having to rely on the vendors
anymore, therefore money can be saved and also the quality of
the software can be improved compared to the commercial
solutions [1]. To ensure the successful OSS implementation at
the national level, strong support from the government is really
978-1-5090-1636-5/16/$31.00 ©2016 IEEE
needed [2]. For example, the efforts of the Bolivarian Republic
of Venezuela government in introducing policies where OSS
usage in the public administration is mandatory [3]. South
Africa (SA) is considered as the African nation pioneer to
come out with a blueprint for OSS implementation, and the SA
government is seen as one of the more dynamic governments
with regards to planning and supporting the utilisation of OSS
in the public sector [4].
In Malaysia, Phase II (Accelerated Adoption) of the
Malaysian Public Sector OSS Master Plan that was
implemented during 2007-2010 aimed to accelerate the OSS
adoption among the public sector agencies in Malaysia. Based
on the Malaysian Public Sector OSS Programme Phase II
Benefit Realisation Report (BRR) by Malaysian
Administrative Modernisation and Management Planning Unit
(MAMPU), 95% (691 agencies) of the total public sector
agencies (724 agencies) have successfully adopted OSS
solutions following the implementation of the Malaysian
Public Sector OSS Master Plan in 2004. OSS implementation
in the public sector agencies is classified into six (6) solution
areas: “desktop, infrastructure, application solutions,
distributed enterprise, high performance computing/clustering
and workload consolidation” where infrastructure, desktop, and
application are the most popular OSS solution areas among the
agencies [5]. OSS has been successfully implemented in the
Federal Government (99.6%), State Governments (94.9%), and
Municipal Councils (95.8%). Many initiatives have been
pushed by MAMPU to accelerate the OSS implementation
among public sector agencies in Malaysia. For example, a
comprehensive OSS e-government systems such as e-
Complaints, e-Submissions, e-Building, e-Planning and e-
Licenses have been used in the Municipal Councils and five
state governments (Pahang, Sabah, Perak, Sarawak, and
Penang) have issued a directive on the compulsory use of
OpenOffice.org, an OSS-based productivity tool, in their
departments [6]. Until 2013, the Malaysian government has
managed to save RM370 million by 921 public sector agencies
or representing 99.6 percent of total public sector agencies at
various levels to reduce the cost of development of information
and communication technology [7]. It has also developed 36
Malaysian companies with the Multimedia Super Corridor
(MSC) status offering jobs to 6,206 employees, generated
RM595 million revenue, and export revenue over RM234
million [8].
However, from the total of 691 public sector agencies that
have implemented OSS, only 192 public sector agencies
(27.8%) have implemented three (3) solution areas or more
with “some form of e-government services and the lowest
denominator being a website”. Another 499 public sector
agencies (72.2%) have implemented only one or two solution
areas [9]. This analysis clearly shows that OSS implementation
is low and OSS solutions are not fully utilised by the public
sector agencies in Malaysia.
It can also be proven from the previous studies that many
public sectors in other countries have failed to implement OSS
e.g. a study on the OSS utilisation in Australian State
Governments [10] and a study on a review of user adoption of
OSS in Africa [4]. Studies in other countries also discovered
problems or barriers to OSS implementation in the public
sector such as lack of OSS expertise [11, 12, 13, 14, 15, 16,
17, 18], lack of OSS policy [11, 13, 14, 16, 18, 19], lack of top
management support [13, 14, 15], negative staff attitude
towards OSS [13, 14, 16, 17, 18, 19], lack of OSS training [20,
21] , and lack of OSS awareness [15, 18].
Therefore, this study will test the hypotheses on the
success factors to OSS implementation in the public sector.
The research question is: What are the Critical Success Factors
in OSS implementation in the Malaysian Public Sector? By
answering this question, the study hopes to verify and come
out with a framework for successful OSS implementation in
the Malaysian Public Sector.
II. LITERATURE REVIEW
A. Open Source Software
OSS is defined as systems that can be accessed by all users,
not only developers, without any cost and they can do
modifications or customisations to the source code based on
GNU General Public License (GNU GPL or GPL) [22]. From
an economic point of view, OSS is compared to traditional
closed sources (commercial) as “a process innovation: a new
and revolutionary process of producing software” where
developers can develop and enhance the software without any
restricted access to the source code [23]. OSS is also described
as free software contributions from developers all around the
globe using the internet as the medium for sharing [24].
Therefore, the existence of OSS offers free alternatives and
solutions for the software developers [25].
Researchers among academician and corporate were
interested in the computer software in the 1950s as an
academic matters rather than as a business component.
Computers were initially sold with free software installation by
the manufacturers. Users were also given software support and
advise by the International Business Machines Corporation and
Digital Equipment Corporation [26]. But in the middle of
1960s, software was not a free item anymore because of the
increase in cost by the manufacturers. Hardware and software
were totally considered as different item with different price
and not sold as a package. Furthermore, software was released
with licensing agreement and copyright protection. Maybe,
United Kingdom (UK) is the first country that issued the first
software pattern in 1966 [27].
Therefore, a non-profit organisation, Free Software
Foundation (FSF) was formed in 1985 by Richard Stallman, a
former academician from the Massachusetts Institute of
Technology (MIT) to champion on the Free Software (FS)
development. GNU/Linux is considered as the best example of
FS that can compete with the proprietary software. FS can be
identified by four criteria as stated in Free Software Definition:
the freedom to execute the program, the freedom to explore on
how the program operates and do the customisation, the
freedom to circulate copies to others, and the freedom to
improve the program and to share it with others [28].
In 1998, the term Open Source Software first came into
use when another group led by Eric Raymond and Bruce
Perens, together with some FSF developers, established the
Open Source Initiative (OSI) as a platform for its commercial
use (www.opensource.org). It is different from Free Software
where additional licensing is available for the combination of
closed and open source software e.g. Berkeley Distribution
License. Developers can customise the source code and sell it
as a commercial product without having to share it with others
[29].
B. Open Source Software in the Public Sector
The adoption of OSS among four European cities (Vienna,
Munich, Schwäbisch Hall, and Treuchtlingen) was the main
attraction for a study by [30] using comparative case studies.
The adoption process involved the migration from Windows to
Linux operating system. The study tried to find out reasons
why public organisations choose to migrate to OSS and also to
identify the influencing factors for OSS implementation. Semi-
structured interviews, reports and publications were used to
collect data. NVivo software for qualitative study was used to
analyse the outcome of the interviews. The result of the study
showed that public organisations choose to migrate to OSS
because of “greater independence, effectiveness, and cost
saving”. While “organisational structure (flat hierarchical
structure), perceived usefulness of technology, leadership,
personnel expertise, legal issues, the availability of contractors,
and interest group involvement” are the influencing factors for
OSS implementation.
Another case study approach was also done by [12] among
selected Sri Lankan government organisations to identify
factors that can give impact to OSS implementation. In-depth
interviews were done to collect data with all levels of staff to
get the best and accurate results. The result showed that “lack
of OSS expertise in companies that bid for government
projects, lack of internal expertise in OSS, lack of OSS support
companies, and use of unlicensed proprietary software” are the
factors that can contribute to the failure of OSS
implementation.
 While in another research, [13] used qualitative research
methodology to investigate the factors that influencing or
prohibiting OSS adoption in Western Cape Schools, South
Africa. Semi-structured face-to-face interviews were done to
collect data using open-ended questions with experienced staffs
from the Department of the Premier, the Department of
Education and selected users at the school level. The identified
factors that influencing OSS adoption in the Western Cape
Schools environment are “the cost benefits of OSS, strong
technology support and service, OSS champions, positive
attitudes, top management support, OSS policy, change
management, allocation of resources and training”. While the
identified factors that prohibiting OSS adoption are “Microsoft
agreement, compatibility with proprietary software, lack of
slack resources, insufficient human resources and lack of time,
IT staff resistance, lack of top management support, lack of
OSS policy, and negative individual attitudes”.
III. RESEARCH FRAMEWORK
The purpose of this study is to determine the success factors
of OSS implementation in the Malaysian Public Sector and to
propose a framework for successful OSS implementation in
the Malaysian Public Sector. Based on the previous studies,
limited research has been conducted on the development of
successful OSS implementation framework for the Malaysian
Public Sector. Therefore, a research framework (as shown in
Fig. 1) is developed as a guide to this study with six hypotheses
(H1- H6) to be tested (as shown in Table 1).
OSS Implementation Success
OSS Expertise H1
Software Quality
H2
OSS Policy
User Satisfaction
H3
Top Management
Support
Community Service
Quality
Staff Attitude H4
Towards OSS
OSS Training H5 OSS Use
OSS Awareness H6 Individual Net
Benefits
Fig. 1. Research Framework.
TABLE 1. HYPOTHESES
No Hypothesis
H1 OSS expertise is positively related to OSS implementation
success.
H2 OSS policy is positively related to OSS implementation success.
H3 Top management support is positively related to OSS
implementation success.
H4 Staff attitude towards OSS is positively related to OSS
implementation success.
H5
OSS training is positively related to OSS implementation success.
H6 OSS awareness is positively related to OSS implementation
success.
a.
The operationalisation of two main variables of the research
framework is based on the preliminary study, OSS success
factors, OSS Success Model, and previous studies of the OSS
implementation in the public sector. These constructs are OSS
implementation success factors (independent variables) and
OSS implementation success (dependent variable). For
independent variables (OSS implementation success factors),
this research identified six variables based on the results of the
preliminary study and literature review, namely, OSS expertise,
OSS policy, top management support, staff attitude towards
OSS, OSS training, and OSS awareness. While for dependent
variables (OSS implementation success), this research adopted
the variables of software quality, user satisfaction, community
service quality, OSS use, and individual net benefits from a
study by [31] on OSS Success Model to measure OSS success.
IV. METHODOLOGY
This study will follow the post positivism paradigm, as one
of the most popular paradigms in research. A quantitative
approach using survey method via questionnaire will be used to
answer the research questions to test the hypotheses by
analyzing the relationships between measurement variables
using statistical techniques. This paradigm is chosen because
the objective of this study is to investigate the relationships
between variables. However, during the initial stage of
exploration and preliminary study, qualitative approach was
used with a semi-structured face-to-face interview with IT
managers and IT officers using open ended questions and
convenience sampling among selected six public sector
agencies in the Northern Region of Peninsular Malaysia. The
different stages of the research process will be followed as
proposed by [32]. This process is chosen because it offers
complete research process from start to finish. The first stage is
the exploration of the literatures that are related to the research
topic in order to establish the research question [32]. A
preliminary study was done as suggested by [33] to look into
the current state of OSS implementation the Malaysian Public
Sector. Next, the research problem was defined based on the
outcome of the exploration and preliminary study stage where
the research questions, hypotheses, and research framework
were developed. Next stage is the research design where the
sampling design and the data collection methods were decided.
In this study, simple random sampling technique will be used
as the sampling design among the sampling frame of the public
sector agencies in Malaysia. While a survey method is the
approach that will be used to collect the necessary data. Next, a
questionnaire was developed as the research instrument and
pretesting of the questionnaire were done by OSS practitioners
and academicians from selected government agencies with
OSS background. The feedback from the pretesting will be
used to do some improvisation on the questionnaire before the
actual data collection. Next, the data collection will be
performed and the collected data will be compiled and
analysed. The data analysis will be executed using PSPP, an
open source statistical analysis program and also a free
alternative for IBM SPSS Statistics, to test the hypotheses.
Finally, discussion and conclusion will be done based on the
results of the data analysis.
Questionnaire will be used as the research instrument for
this research. Reliability and validity of the questionnaire will
be tested before the data analysis. Cronbach Alpha will be used
in this research to test the reliability of the measures used in the
instrument. The instrument used in this research has a proven
content and criterion related validity as it is a derivative of
instruments used in the previous studies. However, since the
measures were modified and reworded, the content validity
was checked again. The measures and factors used in the study
have emerged from the literature review and exploratory study
undertaken before the development of the instrument. The
questionnaire was also reviewed by researchers to ensure
content validity. The creation of multi-item scales and review
of these scales by researchers and practitioners provide our
constructs and their associated items with content validity [34].
The questionnaire will be administered to test the readability
and to ensure completeness of the questionnaire. The
consequences of the common method bias can happen during
the process of answering the questionnaire by the respondents
without the assistance from the researchers during the data
collection [35]. The common method bias can cause bias
estimates of construct reliability and validity as well as
parameter estimates of the relationship between two constructs
[36]. Yet, the common method bias can be avoided using some
countermeasures [36]. Reference [37] suggested
countermeasures such as the use of “different measurement
scale” for independent and dependent variables. For this study,
the questionnaire will use a seven-point Likert scale for the
independent variables (OSS implementation success factors)
and a five-point Likert scale for the dependent variable (OSS
implementation success). The hard copy of the survey
instrument will be pretested by 2 OSS practitioners and 2
academicians. The feedback from the pretesting of
questionnaire will give significant changes and modifications
to the format, content, clarity, layout and consistency of
presentation of the questionnaire.
The questionnaire of this study consists of three sections.
Section 1 includes questions on the general information,
namely, agency's name, agency's category, respondent's current
position, number of years of OSS implementation experience,
total number of IT staff in the agency, number of OSS
practitioners in the agency and OSS solution area. While
Section 2 includes 33 questions on OSS implementation
success factors. It has the measurement items that are adapted
or adopted from the literatures for the six OSS implementation
success factors constructs, namely, OSS expertise, OSS policy,
top management support, staff attitude towards OSS, OSS
training and OSS awareness. Finally, Section 3 includes 23
questions on the OSS implementation success. The five OSS
implementation success constructs, namely, software quality,
user satisfaction, community service quality, OSS use and
individual net benefits are adopted from [31] based on the
updated [38] IS Success Model and the measurement items are
also adapted and adopted from the literatures.
The sampling frame for this study is the list of 724 public
sector agencies in Malaysia (Federal and State Government)
that was downloaded from the official website of MAMPU [9].
The list included the agency name, ministry or state name, and
number of OSS implementation according to the solution areas.
However, for the purpose of this study for successful OSS
implementation, the final list for the sampling frame is 192
public sector agencies that have successfully implemented at
least three (3) OSS solution areas. This study will use simple
random sampling that has “the least bias and offers the greatest
generalisability of the results to the entire population where
every element in the population has an equal chance of being
selected as a subject” [39]. In this study, generalisability is
possible since the list of public sector agencies is available.
Sampling design and the sample size are very crucial for the
generalisability of the sample. Incorrect sampling design can
cause an error to the findings. For example, a large sample that
is more than 500 can cause Type II errors, that is the error of
accepting a hypothesis that should have been rejected, where
“weak relationships in the sample (say a correlation of 0.10
between two variables) might reach significance levels but in
reality they may not be for the total population” [39]. To avoid
the occurrence of this problem, this study will use the
following rules of thumb by [40] to determine the sample size:
• The applicable sample size range of most research is
between 30 and 500.
• The minimum sample size for subsamples or subcategories
is 30.
• The minimum sample size for multivariate research is ten
times or more based on the number of variables in the
study.
The minimum sample size according to rule number 1 is
30. In this study, there are two subsamples or subcategories for
the samples, namely, Federal Government and State
Government. Therefore, based on rule number 2, the minimum
sample size for each category is 30. So, the total minimum
sample size for this study is 60. While for rule number 3, since
there are six (6) variables in this study, the minimum sample
size is 60 (10 x 6 variables). Overall, to comply with rule
number 1 to rule number 3, the acceptable minimum sample
size that will be used in this study according to [40] is 60 where
30 for the Federal Government and 30 for the State
Government. The data collection will be conducted by
distributing questionnaires by post to selected public sector
agencies. Mail surveys are considered as the most suitable
method for “community-based studies” and “large or
geographically dispersed populations” like Malaysia and also
can be carried out in short periods of time and in an economical
manner [41]. Survey questionnaires will be sent to the
respondents among a total population of 192 public sector
agencies (Federal and State Government) in Malaysia [9]. They
will be invited to participate in the survey by sending them a
survey package which included a cover letter, a hard copy of
the survey questionnaire and a reply-paid envelope. The cover
letter will explain the purpose and objective of the survey. The
respondents will be assured of the confidentiality of their
responses and they will be given a week to return back the
questionnaires. It is expected that the response to the survey
would be low, therefore, follow up requests will be done after
seven days. The survey questionnaire will ask for information
about the OSS implementation in their agency and their
opinion on the success factors for successful OSS
implementation. Therefore, government officers among IT
Manager and IT Officer will be chosen as the respondents in
this survey. The job functions of these groups of respondents
are managing, developing, implementing or maintaining OSS
software projects at the government sector besides monitoring
the entire OSS development processes. Thus, these groups of
respondents are classified as most suitable respondents to
participate in this survey as they are likely to be able to provide
a comprehensive evaluation of their organisation’s experience
of the OSS implementation and its effects on performance [42].
V. CONCLUSION
Generally, OSS solutions are not fully utilised by the public
sector agencies in Malaysia and it is also proven through
literatures that many public sectors in other countries have
failed to implement OSS successfully. Therefore, the research
framework will guide the empirical study through which
hypotheses will be validated to answer the research question.
By understanding the critical success factors in OSS
implementation, the findings of this study can benefit the
agencies in the Malaysian Public Sector in implementing OSS
effectively and successfully.
ACKNOWLEDGMENT
The authors would like to thank the School of Computer
Sciences, Universiti Sains Malaysia for supporting the
publication of this paper.
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