Oregon's Policy Development Framework for OSS Procurement & Use Bob DeVyldere Oregon Water Resources Department Oregon Water Resources Department Chair of Open Source Community of Chair of Open Source Community of Practice Practice Ben Berry Oregon Department of Transportation Oregon Department of Transportation Chair, Oregon CIO Council Chair, Oregon CIO Council 15 October 2007 2007 Government Open Source Conference Third Annual GOSCON, October 15-16, 2007, Portland, Oregon Collaboration
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Oregon's Policy Development Framework for OSS Procurement & Use
Oregon's Policy Development Framework for OSS Procurement & Use
Bob DeVyldereOregon Water Resources DepartmentOregon Water Resources Department
Chair of Open Source Community of PracticeChair of Open Source Community of Practice
Ben BerryOregon Department of TransportationOregon Department of Transportation
Chair, Oregon CIO CouncilChair, Oregon CIO Council
15 October 20072007 Government Open Source Conference
Third Annual GOSCON, October 15-16, 2007, Portland, Oregon Third Annual GOSCON, October 15-16, 2007, Portland, Oregon
IT Procurement and Acquisition / Use Alignment is Elusive
ITProcurement
Due Diligence
• Policy
• Legality
• High Cycle Time
On-Demand Processing
• Download and Use
• Fast-Track Acquisition
• Improved Cycle Time
Acquisition& Use
Service Excellence Goals is the Driver
ITProcurement
Developing the Right Perspective is Critical!
Acquisition& Use
ITProcurement
Required
• Legality
• Process
• Compliance
Goals
• Least Cost
• Competitive Processes
• Dependable Solutions
• Improved Efficiencies
• Community Sourcing Support
A shared interest in ensuring efficiently acquired, supportable solutions that drive Best-in-Class Service Excellence and
Competitive Advantage.
Open Source Inventory
Results Survey
Community Source
Framework
Value Goal: Enable Best-in-Class Service
Delivery
State of OregonOpen Source Community of Practice
Open Source Licensing and
Acquisition
Desktop Software
Evaluation
Leverage State
Agencies
High Performance Offerings
Software Evaluation Methodology
Open Desktop Evaluation Model
Solving Barriers to Entry
Decision Tree
OSS Instances by Agency
OSS Instances by Category Type
OSS Product Distribution Pattern
Recommendation Development
State’s Strategic Thinking
Procurement Policies
Level Playing Field of Sourcing Method
Risk Management / Mitigation
So, how do we build Communities of Practice and a Culture of Collaboration?
from http://xkcd.com
So, what is a Community of Practice?
Business Problem/
Oppty
Sponsorship/
Stakeholders
Process Method/Outc
omes
Team Charge
Key Benefits
BusinessObjectives
“Groups of people who share a passion for something that they know how to do, and who interact on a regular basis to learn how to do it better”
- Etienne Wenger
Why put so much energy and resources into an OSS Community of Practice?
Oregon is a leader in open source innovation and uses Open Source Software as economic driver.
New innovative development and sharing OSS applications is a dominant 21st Century business force.
Principle of OSS is that users are provided source code IT programs, but are they really free to use, share, modify and enhance software products?
The goal is widespread interoperability, permissive incorporation into new technologies and new systems, and control over the destiny of the systems employed by users and organizations.
1.1.
2.2.
3.3.
4.4.
What is a Community of Practice?
Domain Community
Practice
Shared
Vision
Open SourceOpen SourceIn OregonIn Oregon
GovernmentGovernment
The data gleaned from the participating agencies provides a partial view of information that is
indicative of “real” usage of open source software products within State of Oregon agencies.
Participating Agencies
52%
Non-Participating
Agencies 48%
Oregon Agencies Use of Open Source Products
16
15
Open Source Consideration
Cost Reductions Customer wants IT solutions that are least cost and competitive, but dependable.
Support performance through sharing of key Open Source community resources.
Time-to-Market
Community Sourcing
Improving the efficiency of business operations through fast-track acquisition practices.
Capture & Correlate Event/Exception
Integrated Services
Composite Events
Virtualization
Application Services
Communication & Collaboration
Content Management
Process Management
Development Environments
Enterprise Applications
Oregon’s Open Source Software Inventory Project
Inventory
Start
ODOT Open Source SolutionsDifferentiator Products Maturity
Application Servers 3 176 3 176 3 13 1
•• PerlPerl•• Jboss Java Server for Adobe and FileNetJboss Java Server for Adobe and FileNet
Collaboration•• OpenOfficeOpenOffice•• JavaMailJavaMail API Version 1.2API Version 1.2
DBMS•• MySQLMySQL•• jTDSjTDS JDBC Driver version 1.2JDBC Driver version 1.2
Development Tools
•• Apache Axis Web Services Version 1.1 1021 Apache Axis Web Services Version 1.1 1021 •• Apache Tomcat Version 4.1Apache Tomcat Version 4.1•• Apache XML Security Version 1.0.5D2Apache XML Security Version 1.0.5D2•• BlueJBlueJ•• Castor XML Data binding Library Castor XML Data binding Library VerVer 9.5.2/9.5.4 9.5.2/9.5.4 •• Jakarta Tomcat Connector 1.2.15Jakarta Tomcat Connector 1.2.15•• Java API for Java API for ServletsServlets Version 2.3.1Version 2.3.1•• Java Run Time Environment (JRE) 1.4 Java Run Time Environment (JRE) 1.4 •• XML Parser required by Axis XML Parser required by Axis VerVer 2.5.0 (2.5.0 (XercesXerces))•• Eclipse IDE (Java development)Eclipse IDE (Java development)•• GnomeGnome•• Java Development Kit (JDK 1.4.2_07)Java Development Kit (JDK 1.4.2_07)•• jEditjEdit•• PHPPHP•• PythonPython
Integration Service•• OpenSTAOpenSTA•• JMagickJMagick Version 5.5.7 Q8 JNI APIVersion 5.5.7 Q8 JNI API
Plus Mainframe Linux PartitionPlus Mainframe Linux Partition
ODOT Open Source SolutionsDifferentiator Products Maturity
Application Servers 3 176 3 176 3 13 1
•• PerlPerl•• Jboss Java Server for Adobe and FileNetJboss Java Server for Adobe and FileNet
Collaboration•• OpenOfficeOpenOffice•• JavaMailJavaMail API Version 1.2API Version 1.2
DBMS•• MySQLMySQL•• jTDSjTDS JDBC Driver version 1.2JDBC Driver version 1.2
Development Tools
•• Apache Axis Web Services Version 1.1 1021 Apache Axis Web Services Version 1.1 1021 •• Apache Tomcat Version 4.1Apache Tomcat Version 4.1•• Apache XML Security Version 1.0.5D2Apache XML Security Version 1.0.5D2•• BlueJBlueJ•• Castor XML Data binding Library Castor XML Data binding Library VerVer 9.5.2/9.5.4 9.5.2/9.5.4 •• Jakarta Tomcat Connector 1.2.15Jakarta Tomcat Connector 1.2.15•• Java API for Java API for ServletsServlets Version 2.3.1Version 2.3.1•• Java Run Time Environment (JRE) 1.4 Java Run Time Environment (JRE) 1.4 •• XML Parser required by Axis XML Parser required by Axis VerVer 2.5.0 (2.5.0 (XercesXerces))•• Eclipse IDE (Java development)Eclipse IDE (Java development)•• GnomeGnome•• Java Development Kit (JDK 1.4.2_07)Java Development Kit (JDK 1.4.2_07)•• jEditjEdit•• PHPPHP•• PythonPython
Integration Service•• OpenSTAOpenSTA•• JMagickJMagick Version 5.5.7 Q8 JNI APIVersion 5.5.7 Q8 JNI API
Plus Mainframe Linux PartitionPlus Mainframe Linux Partition
ODOT Open Source SolutionsDifferentiator Products Maturity
Application Servers 3 176 3 176 3 13 1
•• PerlPerl•• Jboss Java Server for Adobe and FileNetJboss Java Server for Adobe and FileNet
Collaboration•• OpenOfficeOpenOffice•• JavaMailJavaMail API Version 1.2API Version 1.2
DBMS•• MySQLMySQL•• jTDSjTDS JDBC Driver version 1.2JDBC Driver version 1.2
Development Tools
•• Apache Axis Web Services Version 1.1 1021 Apache Axis Web Services Version 1.1 1021 •• Apache Tomcat Version 4.1Apache Tomcat Version 4.1•• Apache XML Security Version 1.0.5D2Apache XML Security Version 1.0.5D2•• BlueJBlueJ•• Castor XML Data binding Library Castor XML Data binding Library VerVer 9.5.2/9.5.4 9.5.2/9.5.4 •• Jakarta Tomcat Connector 1.2.15Jakarta Tomcat Connector 1.2.15•• Java API for Java API for ServletsServlets Version 2.3.1Version 2.3.1•• Java Run Time Environment (JRE) 1.4 Java Run Time Environment (JRE) 1.4 •• XML Parser required by Axis XML Parser required by Axis VerVer 2.5.0 (2.5.0 (XercesXerces))•• Eclipse IDE (Java development)Eclipse IDE (Java development)•• GnomeGnome•• Java Development Kit (JDK 1.4.2_07)Java Development Kit (JDK 1.4.2_07)•• jEditjEdit•• PHPPHP•• PythonPython
Integration Service•• OpenSTAOpenSTA•• JMagickJMagick Version 5.5.7 Q8 JNI APIVersion 5.5.7 Q8 JNI API
88 Request Tracker 4 0.0% 132 DB Visualizer 1 0.0% 176 Grand Total 32133 100.0%
Hype Cycle for Open Source Software 2007
Shared
Vision
Open SourceOpen SourceSoftware & Use Software & Use in Oregon State in Oregon State
GovernmentGovernment
“A Formal Enterprise Policy for Acquisition and Use of Open-Source Software in Oregon State Government May Be Essential to Effectively Satisfy Enterprise and Agency Business Objectives and Applicable Legal and Procurement Requirements.”
“A Formal Enterprise Policy for Acquisition and Use of Open-Source Software in Oregon State Government May Be Essential to Effectively Satisfy Enterprise and Agency Business Objectives and Applicable Legal and Procurement Requirements.”
COMMERCIAL VALUE
REQUIRED POLICY DEVELOPMENT
STATE AUTHORITY
INTELLECTUAL PROPERTY
INTENT
• State to acquire, maintain SW as valuable “IP”.• Critical component of information del. strategy.• Acquired with applicable law, regulation & policy.
• State intends to acquire and use OSS as appropriate for projects and enterprise business objectives, while in legal compliance.
• Currently there is no formal policy of OSS acquisition, use & distribution.
• Intent is to modify current policies to create fair competitive arena for Best Value.
• OSS has commercial value and is typically available via acquisition in conjunction with a reciprocal SW license.
• State applies a Total Cost of Ownership to assess price, i.e., full life cycle cost.
• State has authority to engage Closed & Open Source software providers.
• State’s 1-7 sourcing procurement methods apply.
Oregon’s Open Source Strategic Thinking
Small Procurement
Intermediate Procurement
Competitive Sealed Bidding
Competitive Sealed Proposals (RFP)
Sole Source Procurement
Emergency Procurement
Special Procurement
Acquisitions
$5K or less, or Gift
$150K or less
Open
Open
Open
Open
Open
Financial Authority
Non Competitive, Direct purchase, Single supplier
Informal Competition
Low Cost Selection
Perceived Value Selection
Single Source, Product or both
Normal competition requirements Relaxed
or Suspended
Special process when other sourcing will not
work effectively
Sourcing Methods
Seven (7) Types of Sourcing Methods
Current Acquisition and Use of OSS
The typical OSS Distribution Model involves a simple “no-cost” download of software from the Internet; but growing Business-centric OSS Distribution Models include:
OSS and Services, i.e., OSS at no initial cost and related Service and Support at cost;
OSS Mixed, i.e., OSS with OS code base and Closed Source or Proprietary add-ons;
Proprietary OSS, i.e., applications available with a more traditional proprietary license that authorizes users to modify the application without having to redistribute code changes to the public;
Integrated OSS, i.e., diverse OSS already integrated into more consumable units; and
Hardware and OSS, i.e., Hardware manufacturers using OSS as a foundational component in system operation.
Current Acquisition and Use of OSS
State OSS Usage. Despite not having a formal, enterprise-level OSS acquisition and use policy, State Government has acquired and uses OSS.
Staff OSS Downloads. Over time, the products have appeared through multiple avenues in diverse agencies. The typical acquisition scenario may be a technician’s perceived “no-dollar” cost download of particular OSS ( or Freeware or other procured software with embedded OSS) for some specific operational need.
Vendor Bundling OSS. Vendors have also bundled OSS with their closed source solution sets. This is another way the organizations discover they already are using OSS.
OSS Perceived Value. OSS has remained because of perceived business or technical value in its use.
State Accountability. The State must account for its existing OSS inventory in order to develop effective policies around current and future OSS acquisition and use.
Current Acquisition and Use of OSS
State’s Risk Management. In reaping OSS benefits value, the State must remove or minimize its risk attendant to random acquisition and use of the software, e.g.:
OSS License compliance issues;
Inefficient maintenance and support;
Inconsistent “buy” decisions;
Maverick products that don’t integrate and interoperate within the established architecture and enterprise;
Failure to fully realize cost savings;
Incomplete or non-existent technical, business and legal review; and
Violation of applicable law, regulation and policy.
Procurement
OSS as Gift? Most staff have likely perceived the typical OSS transaction of a no-cost download as a “free” gift, which does not implicate formal or even informal procurement considerations.
License Acceptance. In particular, where the transaction ends with the staff member’s acceptance of an accompanying Software License, this assessment may not be supported by applicable law.
Intellectual Property. The OSS constitutes valuable intellectual property. Acceptance of the accompanying license is valuable consideration in exchange for use of the downloaded software.
Procurement
Exchange Agreement. The parties have each benefited and sacrificed in their mutual agreement to exchange valuable items – the essence of a “contract.”
Recognition of Gifts. Moreover, the State’s current law does not recognize the concept of “gift” separately from the concepts of “purchase” or “procurement.” ORS 71.2010(32), ORS 279A.010(u), and ORS 279B.050.
Acceptance of Software License. The simple download of OSS in exchange for acceptance of a Software License implicates procurement issues and considerations for resolution.
Oregon’s Findings To Date
OSS as Viable Solutions. OSS development and distribution provide viable information systems solutions.
OSS Maturity. OSS is maturing in its diversity of offerings and technical functionality, and is having a growing impact and increasingly noticeable effect on the Software industry.
OSS as Competitive Alternative. Open-Source solutions will increasingly compete with a broad range of Closed-Source products in all markets.
OSS is valuable IP, and is increasingly becoming a critical component of information enterprise strategies and infrastructures in local, state, national and global venues – including the State of Oregon.
Oregon’s Findings To Date
Procurement Event? The acquisition of OSS should likely be regarded as a procurement event.
Legality Process. The inherent value in OSS acquisition and use far outweighs the attendant risks; provided OSS is consistently acquired and used in consonance with applicable law, regulation and established policy.
Usage. The State should acquire and use OSS as appropriate for specific project and enterprise business objectives; but should do so only in compliance with applicable law, regulation and established policy.
Oregon’s Findings To Date
Maximize OSS Utility. Development and implementa-tion of formal acquisition and use policies for OSS will maximize the utility of OSS use in all respects, including without limitation:
Functionality;
Integration;
Interoperability;
Management of acquisitions through a common efficient process;
Efficient management of acquired assets;
Ensuring license compliance; and
Ensuring compliance with governmental enterprise business objectives and public procurement law.
Shared
Vision
Desktop Desktop Software Software
EvaluationEvaluation
1 Software Evaluation Methodology
2 Open Desktop Evaluation Model
3 Solving Barriers to Entry
4 Decision Tree
Desktop Software Evaluation
Open Desktop Evaluation ModelFour Layers of Hierarchical Impact
Applications LayerMS Office – Open Office – Terminal Emulators
and Others!
Applications LayerMS Office – Open Office – Terminal Emulators
and Others!
EndEndUserUser
ExperienceExperience
EndEndUserUser
ExperienceExperience
Desktop Operating Sys.Desktop Operating Sys.
The Open Source Desktop initiative highlights the need for an unbiased approach to evaluating software for the desktop. The methodology used needs to encompass all of the normal business criteria, the work flow a user would follow to perform their job and the platform best suited for this type of work. Our work focuses on
In-Scope: The technical feasibility of instituting an
open source desktop.
Out of Scope: Total cost of ownership, administrative desire,
political will, and procurement and other legal issues will be
addressed as follow on or parallel studies.
Conceptual FrameworkHolistic Approach to Desktop PC Product Evaluation
Software Evaluation Methodology. While considering Open Source Software for the Desktop, one should separate the reviewing and testing portion of the open source software (OSS) applications from the reviewing and testing of the operating system.
By doing so, allows a two prong approach to evaluating the feasibility of incorporating the OSS application independent of the operating system.
The advantage of this approach is in helping agencies determine the viability of OSS applications in their current IT environment, while avoiding the possibility that an open source operating system may have compatibility issues with a well establish IT infrastructure
Conceptual FrameworkHolistic Approach to Desktop PC Product Evaluation
Conceptual FrameworkHolistic Approach to Desktop PC Product Evaluation
Solution Selection Criteria
Evaluates total cost of ownership elements to reveal ongoing savings.
Evaluates total cost of ownership elements to reveal ongoing savings.
SolvingBarriers to Entry
• Switching costs - End user training - Support staff training - Do apps work with new OS?
• If you have to buy closed source SW to enable open source SW, this changes the value proposition.
• Smooth integration to heterogeneous environment
• Need to remove dependency of additional back office solutions to make things work! (Suse /Zenworks)
• End user experience can be fragmented if more than one OS is needed.
• Switching costs - End user training - Support staff training - Do apps work with new OS?
• If you have to buy closed source SW to enable open source SW, this changes the value proposition.
• Smooth integration to heterogeneous environment
• Need to remove dependency of additional back office solutions to make things work! (Suse /Zenworks)
• End user experience can be fragmented if more than one OS is needed.
Decision Tree
• Switching Costs
• Functionality
• Usability
• Reliability
• Productivity
• Supportability
• End User Experience
• Switching Costs
• Functionality
• Usability
• Reliability
• Productivity
• Supportability
• End User Experience
Open Source Community of Practice
Ask yourself, do we have a Culture of Collaboration?
Conclusions
Desktop Evaluation Methodolo
gy
Open SourceSoftware Use in Oregon State Government
Start with a Software Evaluation
Methodology
Include an Open Desktop
Evaluation Component
Encountered Barriers can
influence Decision
Open Source Inventory
Improved efficiency of business operations via fast-track acquisition practicesOSS software
arrives via Technical Staff downloads and Vendor product
bundling
Customers want IT solutions that are least cost and competitive, but dependable
Most CIO’s can discover their OSS
install base by network PC and
server scanning!
The Goals:Best-in-class
Services,Technologies, Processes and
People in support of our
Customers
State intends to acquire and use OSS as appropriate for projects and enterprise business objectives
For risk management, OSS must be acquired with applicable law, regulation & policy
Intent is to modify current policies to create fair
competitive arena for
Best Value
Thank You!Thank You!
Third Annual GOSCON, October 15-16, 2007, Portland, Oregon Third Annual GOSCON, October 15-16, 2007, Portland, Oregon
Bob DeVyldereOregon Water Resources DepartmentOregon Water Resources Department
Chair of Open Source Community of PracticeChair of Open Source Community of Practice
Ben BerryOregon Department of TransportationOregon Department of Transportation
Chair, Oregon CIO CouncilChair, Oregon CIO Council