From Tool to Strategy
In Europe, open-source software has evolved from a purely technical concept into a central component of digital policy strategies. Whilst it was previously regarded primarily as a cost-effective alternative to proprietary software, it is now increasingly seen as the foundation for digital sovereignty.
A decisive turning point is the European Union’s strategic reorientation towards so-called open digital ecosystems. In this context, open source is classified as a ‘digital commons’ – that is, as a shared resource that can be used and further developed in equal measure by government institutions, businesses and civil society.
The aim of this development is to reduce the heavy reliance on non-European
providers such as Microsoft or Google, whilst simultaneously strengthening
Europe’s capacity for innovation.
(Source: Open Future Foundation,
European Open Digital Ecosystems and Digital Commons , 2026)
Legal framework: Interoperability as a requirement
With the Interoperable Europe Act, the EU is establishing, for the first time, a binding framework for digital cooperation between public administrations.
The aim of the Act is to improve the interoperability of public systems. In practical terms, this means that public authorities must design their IT infrastructure in such a way that data can be exchanged efficiently between different systems and even across national borders.
A key principle here is the so-called ‘once-only’ principle: data should only be collected once and then be reusable multiple times. For this to work, open standards and transparent systems are required – two core features of open-source software.
The Act thus indirectly strengthens the role of open source by structurally
favouring open solutions.
(Source: European Commission, Interoperable
Europe Act, 2024)
A look at the practical situation: a comparison of Europe’s strategies
Despite shared objectives, the picture regarding implementation is varied. Different European countries are pursuing different strategies, which can be broadly divided into four approaches.
France: Political Pressure and a Strategic Shift
France is currently pursuing what is arguably the most consistent course of action within Europe. The government has announced plans to gradually reduce the use of proprietary software – particularly Microsoft’s – within the public sector.
Public authorities are required to develop concrete migration strategies and to evaluate open-source alternatives. This development shows that open source is no longer viewed in France merely as a technical option, but as a political instrument for strengthening national sovereignty.
This approach is particularly noteworthy as it aims not only at technical
advantages, but specifically addresses geopolitical dependencies.
(Source:
French government announcements 2026, summarised in international tech reports,
among others)
Germany: Institutionalisation and infrastructure development
Germany is pursuing a structured and institutional approach. The Centre for Digital Sovereignty (ZenDiS) has been established as a central body to coordinate open-source projects within the public sector.
A key project in this regard is ‘openDesk’, a working environment for public authorities based entirely on open source. The aim is to create a sustainable alternative to proprietary solutions such as Microsoft Office.
Unlike France, Germany is focusing less on an abrupt switch and more on
the gradual development of its own structures. This approach reduces risks
but requires a longer transformation process.
(Source: ZenDiS Newsroom,
2025–2026)
Estonia: Open source as the foundation of state infrastructure
Estonia is regarded internationally as a pioneer in digital administration. The state consistently pursues the “Open by Design” approach, in which open technologies are an integral part of the infrastructure from the outset.
A key example is the X-Road platform, which enables secure data exchange between public authorities. It is fully open source and is now also being adopted by other countries.
The Estonian approach demonstrates that open source can be more than just
a supplement to existing systems; it can serve as the foundation for an entire
digital government architecture.
(Source: EU Open Source Observatory –
OSOR Country Report Estonia)
Spain: Collaboration and Reusability
Spain places particular emphasis on cooperation between public authorities. Through central platforms such as the national software catalogue (CIStE), public administrations can share existing solutions and develop them further collaboratively.
This approach reduces duplication of development work whilst promoting the exchange of knowledge within the public sector. Open source is used here primarily as a means of improving efficiency and standardisation.
Compared to other countries, the focus is less on the geopolitical dimension
and more on the practical benefits in day-to-day administration.
(Source:
EU OSOR – Spain Country Intelligence Report)
Common goals – different strategies
Despite the differing approaches, clear common objectives can be identified. All strategies aim to reduce dependence on large technology providers, strengthen control over their own systems and promote innovation through open structures.
At the same time, the approaches differ significantly: whilst France relies on political pressure, Germany focuses on institutional development, Estonia on consistent openness, and Spain on collaborative use.
These differences show that there is no single path to digital sovereignty, but rather various models, each adapted to national circumstances.
Challenge: The gap between ambition and implementation
Implementing these strategies remains a complex undertaking. The transition to open source requires not only technical adjustments but also organisational changes. Existing systems must be migrated, staff trained and processes redesigned.
Furthermore, there is a risk that open-source strategies will not be implemented consistently, leading to continued dependence on proprietary vendors. Particularly in hybrid system landscapes, this can lead to new lock-in effects in the long term.
Open source as a political instrument
Current developments make it clear that open source has long since outgrown the technical sphere. Decisions about software today are also decisions about power, control and geopolitical dependencies.
The question of which technologies are used is therefore inextricably linked to the question of who will have control over digital infrastructure in the long term.
Conclusion: A strategic direction with an open outcome
Europe has set a clear course: open source is to play a central role in the digital future. The political and legal framework for this is increasingly in place.
Whether this strategy is successful, however, depends largely on its practical implementation. The coming years will show whether Europe is actually capable of strengthening its digital sovereignty in the long term.
Addendum: From strategy to implementation
Whilst governments define the framework, organisations face the practical question of implementation.
This is where solutions such as ViOffice come in: they enable open technologies to be used in day-to-day work and support organisations in making the transition to open source in a structured and secure manner.