Open-source software (OSS) is a key component of many digital applications and infrastructures, making it of significant technological and economic importance. For public administrations, using OSS is associated with the expectation of achieving cost efficiency, adaptability, IT security and greater technological independence, among other things.

At the same time, as both a consumer and a regulator,  national governments play a special role in shaping the market through its demand and procurement practices, as well as financial and regulatory instruments. They influence the  conditions for software development and use within the public administration. The use of OSS can help save costs, increase adaptability and strengthen IT security through transparency, as well as becoming independent of technology providers (and thus other countries). OSS is therefore a relevant option for private users, businesses, and the public sector as IT users.

The potential of OSS for public administration has long been the subject of political and scientific discussions and recommendations at the national and European levels. OSS is often not understood as a single software product, but rather as part of an ecosystem that encompasses not only the source code, but also organisational integration, capacity building, governance, ongoing development, and collaboration between government and non-government entities. Various initiatives and institutional structures have been established in Germany in recent years to promote the use of OSS in public administration, including the Centre for Digital Sovereignty in Public Administration (ZenDiS), which was founded by the Federal Ministry of the Interior. Corresponding developments are also being systematically monitored and documented at the European level.

Nevertheless, it is evident that the adoption of OSS in public administration has been inconsistent to date, with many areas still dependent on proprietary software solutions. In response to a minor interpellation (BT-Drs. 20/9641), the Federal Government acknowledges that, despite measures to promote OSS being taken, existing dependencies remain. However, even more far-reaching strategies and initiatives at state or municipal level — such as those recently implemented in the state of Schleswig-Holstein — have not yet led to widespread or systematic use. Against this background, there is a need for a differentiated analysis of the factors that promote or inhibit the use of OSS in specific administrative activities.

Objective and approach

The TA Compact study aims to analyse and comparatively classify the factors that promote or inhibit the use of open source software in public administration. The study is based on an exemplary use case that illustrates the key challenges and design options involved in using OSS.

This use case is the introduction of a general digital workplace in public administration based on OSS, which is currently being implemented in the federal state of Schleswig-Holstein. This use case affects several levels of administration and is characterised, in particular, by software-specific, organisational, and governance-related issues. Technically, it is primarily software-specific challenges that need to be overcome.

The OSS-based solution is compared with corresponding closed-source solutions. Implications for digital sovereignty and IT security, as well as relevant economic and organisational aspects, are particularly taken into account.

The TA Compact study aims to provide a concise overview of the current state of OSS use in public administration, the barriers perceived, the conducive framework conditions, and the possible policy options.

The analysis is based on the following key questions:

1. What is the current status of open source software use in German public administration, and in which areas does dependency on proprietary providers still exist?
2. To what extent is open source software understood as a long-term strategy in public administration, and to what extent is it taken into account in areas such as procurement, operation, further development and governance?
3. Which technical, organisational, legal and economic factors inhibit or hinder the greater use of open source software in specific applications?
4. Which political, institutional and regulatory framework conditions are conducive to the use of open source software, and where are there implementation deficits?
5. What action and control measures can the state and administration take to systematically strengthen the use of open source software and promote digital sovereignty?

The TA Compact project involves analysing an exemplary application case, reviewing literature and documents, conducting expert interviews, and holding a workshop to discuss key findings. The results will be evaluated and compiled systematically in a TA Compact study.