Open Source Software: Perspectives for Development (World Bank & Paul Dravis)

OBy Paul Dravis pen
Source
Software
Perspectives for Development

Table of Contents
Preface 2
Executive Summary 4
Introduction 5
Review Committee Members 6
Part I: Global Perspectives on Open Source Software Use 7
Global Interest is Growing 7
Australia, Brazil, China/Japan/South Korea Collaboration 7
Denmark, European Commission, Germany, India, Malaysia 8
Philippines, Pakistan, Thailand, Spain 9
South Africa, Sweden, United Kingdom, United States 10
Part II: Case Studies in Developing Countries 12
Using OSS in Developing Countries 12
Sao Paulo, Brazil — The Telecenter Project 13
Tajikistan — Introducing Localized ICT 14
Goa (India) Schools Computer Project 16
Laos — The Jhai Remote Village IT System 17
Part III: The Current Dynamics of Open Source Software 20
Benefits Vary Based on Use and Focus 20
Local ICT Capacity Development 21
OSS is Not an “All or Nothing” Proposition 27
Open Source 101: What is it all about? 23
From the Low to the High End of Computing 26
The Desktop Remains a Challenge 28
Private Sector Use is Increasing 29
Technology Suppliers are providing Support 30
The Legal Landscape is Evolving 30
Part IV: Pursuing the Open Source Software Option 33
Guidance for Decision-makers and Project Leaders 33
A Broader Context for OSS Projects 35
Compiere — An Open EPR Solution 35
Koha.org — Addressing the Library Management Market 35
Linux Terminal Server Project 36
MySQL — Attracting increased Business Interest 36
Wikipedia — Built with OSS, Delivering Open Content 37
References 38
Terms to Know 39
Acknowledgements
We wish to thank the following
individuals for their assistance
and insights provided during
this project:
Larry Augustin, Nick Arnett,
Peter Antonio B. Banzon,
Rosalie Blake, Belén Caballero
Muñoz, Jordi Carrasco-Muñoz,
Carlos Castro, Bart Decrem,
Pablo A. Destefanis, Derek
Dresser, Pat Eyler, Lee
Felsenstein, Isidro Fernandez,
Marco Figueiredo, Miguel de
Icaza, Jorg Janke, Joris Komen,
David Land, Daryl Martyris,
Scott McNeil, Jim McQuillan,
Asaf Maruf Ali, Marten Mickos,
Patrick Moran, Tarjei Mikkelsen,
Sankarshan Mukhopadhyay,
Tim Ney, Joerlei Pereira Lima,
Jon Perr, Alex Pinchev, Tom
Possin, Taran Rampersad, Serge
Renaux, David Patrick Ryan,
Prof S. Sadagopan, Amit Sinha,
David Sklar, Guido Sohne, David
Stutz, Jim Thomas, Lee Thorn,
Vincent Ujcic, Mikko Välimäki,
Luis Millán Vázquez de Miguel,
Richard Wiebe, and Ken Wong

OBy Paul Dravis pen
Source
Software
Perspectives for Development
The Dravis Group

Preface
During its first forty years of existence, informatics has moved from heavy centralization to distributed systems.
Initially characterized by the multiplication of isolated smaller machines, micro-informatics was soon to be
transformed by the Internet, i.e. the ability to connect a practically unlimited number of computers regardless of
distance. In the process, new modus operandi and modus communicandi were introduced, whereby information
could be exchanged between machines that functioned under different operating systems.
It did not take long before networked communities of users started to invent and share code about how to
instruct various pieces of hardware to work together, and, progressively to develop application-specific soft-ware.
Progressively, and sometimes erratically, new operating systems and software were being developed and
used by an increasing number of individuals. Because the code on which this software was based was made
available to all, and because any user could offer modifications and enrichments to any part of such code, the
phrase ‘Open Source Software’ (OSS) became a natural way of describing it. Today, the number of individuals
using and/or contributing to OSS has reached a sizeable level. A growing number of enterprises, and adminis-trations,
are using OSS.
Largely because a confusion is often made between OSS and ‘free software’, the debate about the respective
merits of existing commercial solutions (proprietary software and operating systems) on one hand and those of
OSS on the other has often been clouded by controversy. For developing countries and their enterprises, such
confusion and controversy have been less than helpful. Today’s reality is that users have a choice between
many possible solutions to best satisfy their computing and networking needs. The more they know about the
relative merits and possible limitations of such solutions, the likelier they will be to make the choices best
adapted to their respective situations.
Much remains to be known, analyzed and measured about the visible and possible importance of Open Source
for developing countries. As part of its mission to identify and share evidence of how information technology
can contribute to development, infoDev is proud to have commissioned a study that explores how OSS has
started to be used in developing countries, and what its potential could be in the future.
2 Open Source Software

This study should not be regarded as a plea in favor of one type of operating system and software (OSS) as
opposed to another (proprietary), but as a practical attempt to better inform the choices which enterprises
and governments may face in developing countries when trying to do their share of ‘bridging the digital
divide’. It aims to help information technology decision makers in developing countries to understand the
dynamics associated with OSS solutions. It informs about the technological trajectory of OSS development.
Moreover, it illustrates the benefits and challenges related to using OSS as an alternative to other software.
It also attempts to identify and describe examples of successful use (and possible best practices) of the OSS
option in developing countries.
While the findings and opinions stated in this study do not necessarily reflect the views of either infoDev’s or
the World Bank Group, we hope that this modest step will be seen by all as a positive contribution to a healthy
and productive debate about the respective merits of the various software solutions currently available to
developing countries.
Perspectives for Development 3
Bruno Lanvin
Manager
infoDev , GITC
The World Bank Group
Mohsen Khalil
Director
Global Information and Communication
Technologies Department
Jacqueline Dubow
Project Task Manager
Program Coordinator
infoDev , GITC

Executive Summary
This report intends to help information technology decision-makers in developing countries understand the dynam-ics
associated with implementing open source software solutions. We present information on the forces shaping
the open source market in both the public and private sectors. Case studies, in Part II, illustrate ways in which Open
Source Software is used or adapted to meet needs in developing regions. Perspectives from some who have exam-ined
the market are also presented to encourage the exchange of information and promote discussion of this
important topic.
Interest in Open Source Software (OSS) is increasing globally. Technology providers are broadening their
support, deployments are increasing, investors are taking notice, new open source projects are appearing, and
competitors and lobbyists are marketing against it. While the strength of these dynamics can be difficult to
gauge, the trends are positive for OSS. However, concerns of an unproven business proposition, beliefs that the
software is unreliable, along with technology terms, acronyms, and products that are unfamiliar to decision-makers
necessitate continuing education and awareness building.
OSS is about choice. While initial OSS interest is brought about by the potential for lower cost, a longer-term
benefit may be increased choice to consumers of Information and Communication Technology (ICT). The emer-gence
of OSS creates more options to address ICT needs. Solutions can mix both proprietary and OSS compo-nents.
New development models emphasize collaboration and community. Market competition increases.
Projects, when coupled with a focus on interoperability and open standards, should benefit from a greater
emphasis on process/business needs and less on technical underpinnings.
Government leaders have a key role to play. As software use expands into more areas of human endeavor,
consideration should be given to improving access to the market for all software providers. The software
market is dominated by a few proprietary providers who spend over $6.5 billion annually to communicate their
message. There is a need to assist OSS initiatives in accessing market opportunities.
There is opportunity for local capacity development. The nature of OSS lends itself to providing an ICT
environment based on local ownership and autonomy. Software can be adapted to address localization, while
introducing more flexibility and independence to the software development process. With OSS growth in an
early stage for development, business opportunities exist for various complementary solutions and services.
The debate: “open” versus “proprietary” software. The OSS debate is multifaceted and the rhetoric is increas-ing.
Some organizations position the debate on the merits of commercial versus non-commercial software. With
commercial interest in OSS increasing, the discourse should be centered on the merits of OSS versus propri-etary
solutions.
OSS is but one part of an ICT strategy. Traditional development methodologies are still required to deliver
high quality, usable and functional applications. OSS should be evaluated and deployed using the same
methodologies and disciplined care as any other ICT solution.
While some challenges related to open source use in developing countries may be unique because of the social
and economic landscape, most dynamics are global, requiring consideration by decision-makers in all countries.

The emphasis on “openness” in open source software has fostered the growth of a world-wide community of
developers contributing to the evolution and improvement of various software programs for use in networked
servers and desktop systems ranging from operating systems and web servers, to e-mail, word processing and
spreadsheets. While such a diffused structure for software development may seem chaotic, this approach is being
considered as a more democratic alternative to monolithic single vendor efforts.
Interest in OSS is Likely to Grow
While ICT priorities will vary among countries, as it increases as a component of a country’s development strategy,
understanding OSS dynamics should also have more importance. With some discussions becoming quite passionate,
decision-makers will have questions about the potential that open source software may offer, where and how it
should be used, along with its potential risks.
OSS is Different from Proprietary Software
With OSS, the programming code used to create software solutions is available for inspection, modification, re-use
and distribution by others. It is often assumed that open source software is free of charge. While this can be the
case, OSS can be purchased for a fee as well. The concept of “free”, in this context, emphasizes what can be done
with the source code rather than its cost. Because of its collaborative nature, the open source model lends itself to
allow participants to be both producers and consumers/users of the software.
OSS Arguments Range from the Technical to the Economic
The OSS topic incorporates the concepts of community, public good, non-commercialism, ecosystems, and issues of
intellectual property, copyrights and patents. Underlying much of the discussion is that “information” in general,
and “software” as a means of delivery is unlike other goods and services. Central to the discussion are the issues
of when and if information should be “owned” versus “shared”, what is the “value” of software, and when is it
considered a commodity.
Structure of the Report
This report is presented in four parts. Part I: Governmental Perspectives on Open Source Software Use provides
selected views, along with a review of governmental initiatives on OSS use. Part II: Case Studies in Developing
Regions overviews implementations in Goa, India schools; telecenters in Sao Paulo, Brazil; and OSS adaptation
efforts for use within Laos and Tajikistan. Each case presents the needs addressed, the technology used and les-sons
learned by the project teams. Part III: The Current Dynamics of Open Source Software presents a discussion
on capacity development opportunities and varied benefits, selected private sector implementations, support by
commercial technology providers and the status of the legal landscape. Part IV: Pursuing the Open Source
Software Option presents issues for consideration when implementing OSS solutions, or starting an OSS
development project.
Introduction

Review Committee Members
Open Source Software: Perspectives for Development
Larry Austin
Senior Information Officer
Information Solution Group
Washington DC, USA
Barry Johnson
Senior Information Officer
Treasury Operations Department
Washington DC, USA
Rafael Hernández Rios
Information Management Specialist
Information for Development Program
Washington DC, USA
Ewan McPhie
Policy Director
Bridges.org
Cape town, South Africa
Frederick Noronha
Founder
BytesforAll
Goa, India
Pierre Ouedraogo
Program Manager
Institut Francophone des Nouvelles
Technologies de l’Information
et de la Formation (INTIF)
Agence de la Francophonie
Bordeaux, France
David Satola
Senior Counsel
Private Sector Development, Finance
Infrastructure
Washington DC, USA
Tony Stanco
Cyberspace Policy Institute
Georges Washington University
Washington DC, USA
Pamela Street
Research Analyst
Washington DC, USA
Raul Zambrano
Senior ICT for Development Policy
Advisor
United Nations Development
Programme
New York, USA

1 Governmental Perspectives on
Open Source Software Use
Governmental Interest is Global
OSS, as a significant change agent in the software
industry, has drawn interest from proprietary software
interests, lobbyist groups, industry analysts and regu-latory
bodies. Accompanying the discourse is the
creation of myths, misperceptions and concerns. In
the process, governmental organizations, from the
local to the national level, are considering or propos-ing
rules or providing guidance in an effort to “level
the playing field” between OSS offerings and those
of proprietary providers.
There is a growing desire to more equitably share the
benefits of software among both software users and
software providers and pursue options which support
the flexible use and interchange of data and informa-tion
between systems, users and communities.
Motivations and proposals vary. Because the scope of
OSS is broad, developing a single consensus perspec-tive
is unrealistic. Motivations driving governmental ini-tiatives
include: 1) controlling costs of both initial soft-ware
licensing and upgrades, 2) increased control and
access to intellectual property, 3) reducing reliance on
proprietary software development organizations, and
4) promoting software use in the public sector as a pub-lic
good. Some initiatives wish to “mandate” that open
source solutions be used when all things are equal,
others address the need for “consideration” of open
source software alongside proprietary offerings when
new purchasing decisions are being pursued.
It is noteworthy that governmental interest and activism
is global and not aligned by geographic area, economic
group or political philosophy. The following are examples
of current governmental initiatives in various stages of
review or implementation.
Australia
The South Australia government in Adelaide has intro-duced
The State Supply (Procurement of Software)
Amendment Bill 2003 which states that: “A public
authority must, in making a decision about the procure-ment
of computer software for its operations, have
regard to the principle that, wherever practicable, a
public authority should use open source software in
preference to proprietary software.”
Brazil
President Luiz Inacio Lula da Silva is finalizing a policy
recommending that federal ministries, agencies and
state enterprises install open-source software, such as
Linux, instead of proprietary software on new computer
systems. A goal of this policy is to have at least 80% of
government computers purchased during 2004 support
open source software.
In October 2003, Free Software Implementation
Guidelines in the Federal Government was published.
China, Japan, and South Korea Collaboration
In September 2003, the governments of Japan, China
and South Korea announced that they will work with the
private sector to develop new operating system software
for devices such as cell phones, digital cameras and car

navigation systems and the network server market.
It is anticipated that the work will be based on Linux.
In November 2003, Gou Zhongwen, a vice minister at
the Chinese Ministry of Information Industry said “Linux
is an opportunity for us to make a breakthrough in
developing software,” “But the market cannot be devel-oped
on a large scale without government support.”
Denmark
In October 2002, the Danish Board of Technology, in
its report “Open Source Software in e-government”,
recommended that governments take an active role in
promoting standardized file formats and alternatives
to proprietary applications formats.
European Commission
In the “eEurope — An Information Society for All” (June
2000) it noted that “during 2001 the European Commission
and Member States will promote the use of open source
software in the public sector and eGovernment best
practice through exchange of experiences across the
Union (through the IST and IDA programmes)”.
The European Commission released a report “Pooling
Open-Source Software” to address cost savings by shar-ing
software on an open source licensing basis. European
administrations should share software on an open source
licensing basis, to cut soaring eGovernment information
technology costs. The study recommends creating a
clearing house where public sector software applications
can be donated for re-use and could encourage the repli-cation
of good practices in eGovernment.
In August 2003, the European Commission initiated
an effort for “Encouraging good practice in the use of
open source software in public administrations”. The
initiative will primarily focus on the development of
national and regional open source competence centers
to facilitate the exchange of information about opportu-nities
and risks associated with open source software.
In October 2003, the European Commision’s
“Interchange of Data Between Administrations (IDA)
Open Source Migration Guidelines” noted that “There
are many reasons for Administrations to migrate to
OSS. These include: the need for open standards for
e-Government; the level of security that OSS provides;
the elimination of forced change; the cost of OSS. All
these benefits result in far lower IT costs.
Germany
In May 2003, the City of Munich announced its plans to
migrate 14,000 computers in its public administration
to Linux and other open-source office applications.
The migration program begins in 2004. Munich Mayor
Christian Ude said the city was seeking greater IT inde-pendence
and wanted to “set a clear signal for greater
competition in the software market.”
In June 2003, Otto Schily, Minister of the Interior
Federal Republic of Germany stated “We raise the level
of IT security by avoiding monocultures; we lower the
dependency on single software vendors; and we reach
costs savings in software and operation costs.”
India
The Indian government has launched the Linux India
Initiative that focuses on developing resource centers,
special interest groups, pilot projects, assisting in the
localization of Open Source software and to support the
development of research studies.
Malaysia
The government is establishing a national OSS refer-ence
center directed by the Malaysian Administrative
Modernization and Management Planning Unit. Among
the activities to be carried out are the management of
OSS implementation through the provision of consul-tancy,
support and audit, formulation of policies and
standards, certification and training, and OSS research
and knowledge building.
In October 2003, The Ministry of Finance announced its
plan allocate funds to the Malaysian Venture Capital

Management Bhd to sponsor independant OSS compa-nies
through its “OSS-Platform Investment Programme”.
Philippines
The Philippine government has initiated an effort to
develop a package of open source software products as
well as a support mechanism for government agencies,
schools, and small businesses. The Advanced Science
and Technology Institute (ASTI), which falls under the
Philippines’ Department of Science and Technology
(DOST) has released a simplified version of Linux called
Bayanihan Linux (bayanihan.asti.dost.gov.ph).
ASTI is also developing enhanced thin client and
embedded solutions using OSS. The DOST has also
funded an OSS based information system that is being
implemented by the National Computer Center for use
by more than 3,000 local governments.
Pakistan
The Government has announced that Linux and Open
Source products are at the forefront of its initiatives
to curb piracy and protect intellectual property.
TReMU, Pakistan’s Technology Resource Mobilization
Unit, has created a task force it calls “Linux Force,” to
review the value these offerings can provide to their
computing needs.
Thailand
The government’s ICT Ministry is targeting to have
5% of government agencies use Linux during 2003.
Dr. Surapong Suebwonglee said the ICT Ministry would
encourage the use of Linux, with a long term goal to
have Linux support 50% of installations in govern-ment
agencies.
The ICT Ministry also introduced a series of low-cost
PCs to increase computer literacy among the poor.
The government-subsidized project initially planned to
include Linux TLE, a Thai version of Linux, along with
the OpenOffice productivity suite. Microsoft respond-ed
by agreeing to deliver its operating system and
Office suite for $36 (typically priced at +$300 US),
translate the programs into Thai, and develop new
licensing agreements.
Spain
In April 2002, the Extramadura Ministry of Education,
Science and Technology initiated a project to convert
computer systems from proprietary systems to OSS
which include the creation of their own OSS distribution
called GNU/LinEx. According to Luis Millán Vázquez de
Miguel, Minister of Education, Science and Technology,
“We chose OSS for two reasons: first of all, because we
cannot afford paying for 100,000 licenses. We have
saved 30 millions Euro alone in licenses. Secondly,
because of safety reasons. We cannot carry out such a
huge project and not have access to the codes, we can-not
depend on a single company either. Using OSS, we
update everything we need when we need it”.
Project goal is to support the Red Tecnológica
Educativa (Educational Technology Network) for pro-viding
one computer for every six primary students
and one for each secondary student in the region. A
secondary school history teacher in Calamonte said
“From the educational point of view, there is no dif-ference
between GNU/LinEx and Windows. Students
need transparent software. They use the computer to
make a task and do not worry who is the proprietary
of the license”.
Under their Digital Literacy Plan, Nuevos Centros del
Conocimiento (New Knowledge Centres) computers are
placed in 33 communities. Over 30,000 citizens have
taken advantage of the program. Economic and social
goals are being met by distributing OSS through the
Plan de Alfabetización Tecnológica (Technology
Literacy Plan), to small businesses and the regional
government administration. The Vivernet program
helps new businesses by providing young entrepre-neurs
with access to ICT resources. Vivernet has two
Centres (in Cáceres and in Badajoz) and has more than
4000 users and over 38 businesses participate.

South Africa
In January 2003, the government’s report “Using Open
Source Software in the South African Government”
recognizes the educational and commercial benefits of
Open Source development and recommends that part-nerships
between academic, industry and government
institutions be implemented. The report proposes that
1) “discrimination and prejudice will be avoided in soft-ware
procurement procedures, making choices based
on merit, thus giving OSS and proprietary software
(PS) equal opportunities to be selected” and 2) “as OSS
offers significant indirect advantages, opting for OSS
will be preferable where the direct advantages and
disadvantages of OSS and PS are equally strong, and
where circumstances in the specific situation do not
render such preference inappropriate.”
In July 2003, Geraldine Fraser-Moleketi, South African
Minister of Public Service and Administration provided
the following comments on OSS: “Support - As long
as there is a market for support, the open source code
allows anybody to provide it, whereas proprietary soft-ware
(PS) support is dependent on the development
company. If that company goes out of business, the
support can disappear with it.
Security — Some critics maintain that using OSS is
a security risk. Real experts can allay that fear. In
fact, the availability of source code has the added
advantage of enabling the user organization to study
it, determine whether its functioning poses any
security risks and amend the software if so desired.
Furthermore, when new problems are found, solutions
are available far sooner than with PS, as anyone can
examine the problem and find its solution.”
Sweden
In February 2003, Statskontoret, the Swedish Agency
for Public Management published a study stating the
following: “The conclusion of the working group is that
free and open source software in many ways, both
functionally and qualitatively, is quite equivalent to —
or better than — proprietary products. Free and open
source software should therefore be judged on an even
par with proprietary software in a procurement process
in order to establish better market competition. It is
also necessary to place demands on open standards
and file formats in order to achieve interoperability
between different systems.”
United Kingdom
In its policy document “Open Source Software Use
Within UK Government” (July 2002), it states that the
“UK Government will 1) consider OSS solutions along-side
proprietary ones in IT procurements. Contracts will
be awarded on a value for money basis, 2) only use
products for interoperability that support open stan-dards
and specifications in all future IT developments,
3) seek to avoid lock-in to proprietary IT products and
services, 4) consider obtaining full rights to bespoke
software code or customizations of COTS (Commercial
Off The Shelf) software it procures wherever this
achieves best value for money and 5) explore further
the possibilities of using OSS as the default exploitation
route for Government funded RD software.”
In October 2003, the Office of Government Commerce
announced plans to test open source software in nine
different areas of government. Lead by the Office of the
E-envoy, the project will measure the benefits of OSS
with those of proprietary systems.
United States
In October 2000, The President’s Information
Technology Advisory Committee (PITAC) report
“Developing Open Source Software to Advance High
End Computing” recommends that “a ‘level playing
field’ must be created within the government procure-ment
process to facilitate Open Source development.”
In April 2003, the report Developing an Open Source
Option for NASA Software, stated that “For NASA, the
adoption of an Open Source option for software distri-bution
would lead to three main benefits: 1) improved

software development; 2) enhanced collaboration,
in particular across organizational boundaries; and
3) more efficient and effective dissemination.”
State Of Oregon In March 2003, House Bill 2892 was
introduced which would require State agencies to
“consider the use of Open Source software” for all
new software acquisitions.
State of Texas Senate Bill 1579 proposes that, “for
all new software acquisitions, a state agency shall:
1. consider acquiring open source software products
in addition to proprietary software products; 2. except
as provided by Subdivisions (4) and (5), acquire soft-ware
products primarily on a value-for-money basis;
3. provide justification whenever a proprietary software
product is acquired instead of open source software;
4. avoid the acquisition of products that do not comply
with open standards for interoperability or data storage;
5. avoid the acquisition of products that are known to
make unauthorized transfers of information to, or permit
unauthorized control of or modification to the state
government’s computer systems by, parties outside the
control of the state government.”
State of Oklahoma Oklahoma bill, HB 1627 introduced
in January 2003 states that “No state agency nor the
Purchasing Division of the Department of Central Services
shall enter into a contract for the acquisition of computer
software developed exclusively for the agency or the state,
unless the vendor agrees to provide to the agency or the
state the source code for the software.” It was also noted
that “For purposes of this section, ‘source code’ means
the programming instruction for a computer program in
its original form, created by a programmer with a text
editor or a visual programming tool and saved in a file. ”

2 Case Studies of OSS Use in
Developing Countries
Uses of OSS in
Developing Countries
Consideration for the OSS option in developing regions
will occur in the context of the broader ICT priorities.
Assuming that there is appropriate access to ICT
resources, OSS solutions can be applied in addressing
individual needs, along with pursuits in the public and
private sector.
Web sites based on OSS can be used for needs such
as e-government portals, educational information
sharing or advertising a small business’ products and
services. E-mail services can be established to provide
communication with regional or global contacts. Efforts
are also being pursued to localize a variety of OSS
solutions to support microbanking and other business
software needs.
The Case Studies
Examining OSS on a global basis is a complex and multi-faceted
topic. Work remains to address many development
policy considerations. Questions of scale, approach, local-ization
dynamics, and replicability of process require
exploration. Key to the process is the sharing of informa-tion
of its use in varied setting. The case studies intend to
in increase awareness of how and why OSS is being. While
the cases represent a fraction of the potential scenarios
for OSS use, they present some OSS project dynamics
that should enrich the OSS public policy discussion.
Four case studies present the use of OSS in developing
regions. Each case overviews the needs addressed by
the initiative, the OSS technology used and lessons
learned by project team members.
Sao Paulo, Brazil — The Telecenter Project. The
city establishes telecenters to provide free com-puter
use and Internet access to marginal neigh-borhoods.
72 telecenters are functioning, with 128
centers planned by the end of 2003.
Goa (India) Schools Computer Project. The project
has delivered recycled PCs running Linux to 125
schools in the region.
Tajikistan — Introducing Localized ICT. The project
is translating desktop OSS into Tajik, and developing
secondary school educational materials into Tajik
computer based educational courses. 30 new PCs
have been shipped for deployed in 3 locations.

Laos — The Jhai Computer. The system design
addresses needs in Phon Kham and four other
villages to make local calls and calls overseas via
the Internet. Providing basic computer functions
such as document preparation and spreadsheet
use are components of the effort.
Sao Paulo, Brazil —
The Telecenter Project
The Municipality of São Paulo has initiated a project
to establish a network of telecenters to provide free
computer use and Internet access to marginal neigh-borhoods.
The implementation and management of the
telecenters it provided by The Electronic Government
initiative. 72 telecenters are functioning, with a goal of
having 128 centers operational by the end of 2003.
Each telecenter provides service to about 3,000 users.
The cost of setting up a telecenter is $10,000. Usage
of telecenter facilities is free of charge for the local
community with participants scheduling for access
time in 30 and 60 minute increments.
Addressing a Variety of Community Needs
Workshops and courses provided to the community at
the telecenters include Web-site creation, journalism,
image processing, Internet research, and history of
each neighborhood and the local environment.
Participants are encouraged to write articles about
everyday life and events in their communities. Efforts
are encouraged to pursue artistic activities, such as
creating rap lyrics and poetry online.
Support staff is available to assist users. The program
is designed to develop support staff from within
each community to provide new skills and create
work for citizens. Students are provided with free
lecture notes and receive a certificate at the end
of each course.
The Rationale for using OSS
Pursuing the government’s “Digital-inclusion” initiative,
while operating within budgetary constraints, required a
strategy of investigating low cost technology alternatives
which provided a high quality of service. The combination
of OSS and diskless workstations allowed the Telecenter
project to acquire computers with less hardware and
power requirements than required by a Microsoft
Windows solution. Additionally, the project is not con-strained
by proprietary software licensing requirements.
The Technology — Linux and Diskless Workstations
Each Telecenter runs a high-end server and 20 diskless
workstations (Pentium class systems). The diskless
Linux workstations are connected to the server with a
100MB network. The underlying infrastructure technolo-gy
consists of Debian Linux and Linux Terminal Server.
Application software includes the GNOME desktop,
work processors, spreadsheets, Web browser and Gimp
(graphic/image processing). Documentation and tutorials
have been developed and are available in Portuguese.
Telecenters, City managed, along with Private
Partners
The program supports telecenters that are directly
managed and have been installed in buildings owned
and operated by the city. In areas where municipal
building space is not available, partnerships with private
companies have been established to implement and
support telecenters.
Lessons Learned
The following observations shared by Beatriz Tibiriçá —
Coordinator of the Electronic Government are from
experience with the telecenter initiative:
Using OSS was easier than expected. The percep-tion
that GNU/Linux is extremely complicated to
understand and use turned out to be unfounded at
the telecenters. Children, the elderly and individuals
with minimal education have easily learned to use
the systems.

Building local ownership is important. Each telecen-ter
has its own Advisory Council formed and elected
by the local community to determine some rules
of use for the telecenter. Being a member of the
Council has its own stature and is viewed as an
important duty. The Council helps guide the man-agement
of the telecenter in issues such as security.
Providing a quality service can build respect.
Providing a public service in a quality fashion can
result in a high level of respect by the community.
Pursing this strategy has resulted in a low rate of
vandalism at the telecenters.
Telecenters are more than just the technology.
While each telecenter is supported by computers
and a broadband Internet connection, their physical
appearance and layout are different from one
another. The unique “character” of the telecenter is
determined by the actions taking place in the tele-center
and the work going on there.
Usage can vary among different age groups. Usage
of the telecenter can differ among various age
groups in the population. For example, in some situ-ations,
the elderly can have very specific and practi-cal
uses for the telecenters, such as communicating
with people from other cities, while the behavior of
young people may be more focused on school relat-ed
activities and entertainment.
Tajikistan —
Introducing Localized ICT
Tajikistan has a population of approximately 6.8 million
and the lowest per capita GDP among the 15 former
Soviet republics. Among the issues limiting computer
usage has been the lack of systems supporting the
native Tajik language. A project, managed by Khujand
Computer Technologies, has developed a team of volun-teers
focused on translating desktop software into Tajik,
and developing secondary school educational materials
into Tajik computer based educational courses.
According to Roger Kovacs, the project’s leader, there is
“a tremendous group of young intellectual citizens ripe
for computer education. The country could prosper from
a strong computer/software education program.” With
typical monthly salaries of $20, new computers are very
expensive and low cost approaches need to be consid-ered
to address the opportunity for ICT introduction.
The Project
In July 2003, the project shipped 30 new PCs to Tajikistan.
These systems were assembled in the US and configured
with a preliminary Tajik version of Mandrake Linux 9.1.
The systems are being deployed in 3 locations.
In Tajikistan’s two largest cities, Dushanbe and Khujand,
community computer centers will be opened. The PCs
will be used primarily by the volunteer translators,
along with secondary school students for their studies.
On a restricted basis, the centers will be available to
small businesses and the general public to develop pro-grams
for future sustainability.
A third computer center is located in the school of an
orphanage with over 900 students. In addition to
translating Linux into Tajik, the project will develop
secondary school educational materials in Tajik for
use on the computer.
Once the translation is completed, it is expected that
the centers in Dushanbe and Khujand will become more
accessible to the public. The centers will continue to
maintain the updates to the translated applications,
while providing public education in computer technology.
Rationale for Using OSS
When considering desktop computing platforms for the
project, there was no version of Microsoft software
available in the native Tajik language and translation

would be very expensive. Also, translating a propri-etary
offering would result in dependence upon a for-eign
company for all of the country’s computer tech-nology,
with no assurance that all future products
would continue to be translated. By using OSS,
Tajikistan can control its own ICT destiny.
After a trade study of various Linux distributions,
Mandrake Linux was selected as the target for transla-tion.
Mandrake’s support for localization has been very
helpful as the team adapts the software to their needs.
Following the translation of Mandrake Linux, work will
start on KDE, including the KOffice Suite, and Mozilla.
Current Status
The country has many educated youths interested in
providing a positive contribution to the community.
Volunteers have worked hard on translation and with a
combination of mentoring and training, the team has
translated over 50% of Mandrake Linux.
Funding has been obtained to support the efforts of 3
to 6 Tajik translators. University students interested in
improving their English skills have been recruited to
convert Mandrake Linux (its user interface, dialogue
boxes, menus, help screens, etc.) into Tajik. Work is tak-ing
place in Tajikistan, with project completion targeted
for December 2004.
The Central Asian Development Agency (CADA) is pro-viding
a critical e-mail link from the US to Tajikistan
which allows the translator’s work to be integrated into
the entire project. In addition, their on site presence pro-vides
for tremendous consultation advice and support.
The Keyboard and Font Challenge
At the beginning of the project, there was no PC key-board
layout for the Tajik alphabet, nor was there a
process to define, develop, approve or maintain such a
computer standard. Setting such a standard is required
to avoid the fragmentation to different keyboard layouts
when training citizens on computer use.
As this effort is the first of its kind in Tajikistan, the proj-ect
team has established a de facto standard. Committees
are being defined to address issues associated with accel-erator
keys and conventions for use with menu items.
Standard open source fonts which include the Tajik charac-ter
set are limited, and additional work is required. The
open source is likely to provide the means for volunteers
to implement the Tajik character set in other existing fonts.
Lessons Learned
The project was developed by nurturing grass roots com-puter
enthusiasts interested in improving their skills and
delivering ICT capabilities to their community. Mr. Kovacs
continues to manage the project, with very limited famil-iarity
with Tajik. His mentoring of volunteers resulted in
the initial 30% Mandrake Linux with no budget or grants.
Today, there are two Tajik NGOs involved as well.
Lessons learned from the project include:
Establish goals, both strategic and tactical.
Develop goals that are measurable, achievable and
understood by the varied stakeholders. Without goal
setting, the potential to lose project focus and
momentum can increase.
Build on the strengths of the team. Identify the
skills that are available among the team members
and align them with the project objectives.
Patience and understanding is needed. Generally,
project activities will take longer than planned. In
this project, E-mail has been used extensively as a
training medium, which can slow the progress of the
project. Understand the constraints of the project
and work within them.
Communication is important, especially when
working between languages. If there appears to be
a misinterpretation among team members, quickly
move toward clarification.

Think and work positive. Do not be distracted by
events that some may interpret as potential compe-tition
or conflicts. All projects have distractions.
Understand and when needed evaluate them.
Remain focused.
As the project team progressed, it has learned that
software engineering is only one of the skills required in
their efforts. A focus on logistics and general project
management are also critical for success. Challenges
exist, but soon there will be an open operating system
and applications in native Tajik for schools, business
and government to use.
Goa (India) Schools
Computer Project
The Goa (India) Schools Computer Project (GSCP) was
started in 1996 as an informal community effort by over-seas
Goans living mainly in the US. The goal was to help
facilitate access to PCs by students and the surrounding
community where the respective schools were located.
The project was aimed mainly at schools in rural areas.
Goa has 360 secondary schools. 70 are government
operated, with the remainder government aided
schools, of which 50% are run by the Archdiocese of
Goa. Total enrollment is 110,000. Since 2002, the Goa
government has supplied an average of 2 PCs per
school, a training person, and a government syllabus.
Students are taught basic computer use including an
introduction to word-processing and spreadsheets.
The Project
In January 2002 GSCP provided a shipment of 380
recycled PCs to Goa under an agreement between
GSCP and the Goa Department of Education. GSCP test-ed
and refurbished the equipment before distribution
and provided training to teachers in the use of the
Linux operating system. The schools were to provide
electric wiring and furniture. GSCP provided hardware
maintenance during the first year after installation.
The schools are to arrange for maintenance after this
“warranty period”.
Uses of the System
Stand-alone and networked systems have been installed
in schools. Depending on the configuration, they are
used to learn computer skills as well as provide Internet
access. Some computer labs are also available after
school hours to allow interested students computer
access and for general community access to Internet.
The Technology
The GNOME desktop was selected initially for its ease of
use and lower resource demand than KDE. RedHat India
offered free boxed packages for all the schools.
Systems with small hard-disks were configured with
minimal system software installed.
Spreadsheets were taught using Gnumeric and word-processing
using Abiword . During 2003 OpenOffice was
also introduced. The project team uses Linux Terminal
Server (LTSP) in schools where 4 or more networked
computers are installed. ICEwm has replaced Gnome as
the window manager on all LTSP systems because of its
lower resource requirements.
Rationale for OSS Use
GSCP wanted to avoid software piracy and the cost to
install Microsoft software was greater than the $60 cost
of the recycled computers. Access to a local Linux User
group providing volunteer support to schools was also a
factor in the open source decision.
Current Status
As of July 2003, 125 schools received recycled PCs,
ranging from 1 to 6 computers. The number of PCs
issued was determined by number of students, willing-ness
to work with Linux and funds available to provide
the appropriate infrastructure. GSCP offered free sup-port
and maintenance to all 125 schools for a period of

one year. The systems, most of which are Linux based,
were installed primarily in rural and semi-urban set-tings.
GSCP was thus able to provide 1 or more systems
to approximately 30% of the schools in Goa. A locally
registered organization called the Knowledge Initiative
Trust has now been formed to manage GSCP.
Lessons Learned
According to Alwyn Noronha, GSCP project manager
“The experience of the GSCP team is that low cost and
sustainable school computer labs can be established in
rural schools using recycled equipment and open-source
software. GSCP has demonstrated that PCs running both
Linux and Windows environments can effectively be
used simultaneously in the same computer lab.”
The Effect of Introducing Linux. Initial training was
required for computer teachers familiar only with
Microsoft Windows and standalone environments.
GSCP continues to invest in teacher training. The
state’s computer program was developed assuming
the use of Microsoft Windows and teachers had to
be instructed how to adapt it for a Linux environ-ment.
There are 3 Linux User Groups (LUGs) in Goa.
Volunteers from them helped when schools have
experienced problems.
Compatibility with Proprietary Software. GSCP
found no significant requirement by schools to
exchange data between open source and propri-etary
systems since the systems are used primarily
for teaching purposes. The increasing use of
OpenOffice has resulted in less problems conform-ing
to the government’s syllabus which assumes the
use of Microsoft Word and Excel. Since OpenOffice
can read and write MS Word and Excel formats
there are minimal problems in exchanging data.
After the 3 year Goa government maintenance
contract with the vendor supplying PCs to schools
expires, school authorities will have the option of
having the government provide PCs to join the LTSP
networks for access to email and web browsing of
Intranets. All open source expertise required is avail-able
from the Goa Linux User Groups.
Training Initial training helped familiarize teachers
with Linux basics and the differences between OSS
and proprietary applications. PCs running in both
of these environments are used simultaneously
in computer lab. The training focus now is on
Computer Aided Training for teachers on non com-puter-
related subjects. Efforts are being pursued to
find software to supplement traditional teaching
methods in subject areas such as physics, mathe-matics,
chemistry and geography.
The Physical Infrastructure The GSCP assumed
there would be higher than usual hardware failure
when using recycled PCs. However, a 2002 survey
shows that both GSCP and government donated
PCs had a comparable rate of failure. This can be
attributed to the generally poor quality of electric
power in Goa, ie. power fluctuations and frequent
power failure. Some schools have not yet installed
the PCs because of physical infrastructure issues
such as lack of electric wiring in rooms reserved
for the computer lab or limited space. Schools
using Linux in a semi-urban area were more suc-cessful
in maintaining their equipment because
these schools generally have better access to
technology support resources.
Laos — The Jhai
Remote Village IT System
To help the communities of Phon Kham and four other
villages obtain information on agricultural market
pricing and pursue initiatives to improve the village’s
income requires improved access to communication
services. The Jhai Remote Village IT system, currently
in development, is designed to address these needs by

providing support for local calls and overseas connec-tions
via the Internet, along with document preparation
and spreadsheet capabilities.
The villages are located in a valley 85 Km north of
Vientiane. Power and telephone service is absent and
cellular phone access is limited by a mountain range.
Other challenges an ICT system must address are
torrential rains, high temperatures, humidity, and dust.
The Solution
The Jhai system is based upon a low-power embedded
computer running a localized version of KDE, called
LaoNux, on the Debian Linux distribution. The village
computer connects to the Internet with a wireless 802.11b
card which communicates to an antenna bolted on the
roof which sends a signal to a nearby solar powered
access point, which is then sent to Phon Hong, which
is 25 km away by road and the closest village with
phone lines.
The computer runs on 12 watts of power, supplied by
a bike-pedaled generator. Solar power was rejected
because of the four-month monsoon season and the
cost: the bicycle is only a third of the cost of solar
equipment. One minute of pedaling generates about
five minutes of power.
According to Lee Felsenstein, the designer of the system,
“the system’s technology uses readily available compo-nents
and is engineered for long and reliable service”.
By applying available wireless and computational tech-nology,
the team hopes to minimize the cost impact of
alternative telecommunications infrastructures.
Rationale for Using OSS
The existence of a growing body of open source software
supporting wireless communications was central to its
selection for the project. The Jhai Remote IT Project has
converted the Linux-based KDE Graphical Desktop and
productivity resources into Laotian, supporting email,
word processing, and simple spreadsheets.
Felsenstein decided that the operating system had to
be Linux because “this system had to run for 10 years,
and open-source software brings with it a human
infrastructure of people who know how to maintain it.”
Lee Thorn, Jhai Foundation’s chairman, adds that
Linux was also chosen because localization was easier
than under other platforms.
LaoNux — Localized OSS
Working with computer science and electrical engineering
students and teachers at the National University of
Laos in Vientiane, under the direction of former IBM
software developer Anousak Souphavanh, the team
developed a Laotian version of the Linux-based graphical
desktop called KDE. Its suite of business tools allows
Laos citizens to browse the Web, send e-mail, and create
simple documents.
Lee Thorn called the localization into Laotian “probably
the hardest part of the whole project.” In order to gen-erate
fonts in Laotian, for example, the team had to create
its own Unicode, a standard for encoding letters and
other characters in any language.
Status of the Project
After system testing in Laos in early 2003, its imple-mentation
was hindered by monsoon weather condi-tions
and a misunderstanding with a local government
official. As a result, the system is back in the San
Francisco Bay Area, with the team completing docu-mentation,
testing, and hardware modification. The
team hopes to return to Laos in November to provide
implementation and training.
Lessons Learned
As system implementation approaches, Lee Thorn
shares the following on their efforts.
Project definition is essential. The most important
lesson is that obtaining a clear and comprehensive
definition of needs by end users has focused the
overall project direction in developing the Jhai system.

With a clear definition established at the beginning of
the project, “scope creep” is effectively managed.
Obtaining OSS support has not been an issue.
Finding and leveraging OSS resources has not
been an issue for the team, and LaoNux has
proved to be a supportable platform. Also, relying
on open design specifications has allowed volun-teers
to quickly provide their technical expertise to
the project.
Designing for rigorous needs should allow for
adaptation to other environments. While environ-mental
design requirements of the Jhai system are
challenging, the team believe its solution can be
transferred and modified for less harsh conditions.
A long term time horizon should result in afford-able
solutions. The project’s design philosophy
assumes 10 years of sustainable system use. This
perspective focuses the team on using commodity
components, along with avoiding short term tech-nology
upgrade cycles. This approach should allow
for component replacement to be performed by
newly trained support staff.
End-user involvement creates ownership and
drives economic sustainability. Obtaining end-user
participation from conceptual design onward
helps build ownership of business solutions and
create local experts. Farmers and business people
who know local markets, price structures and
costs are used in the project to determine needs
and develop business plans, with minimal use of
outside ‘experts’.
Consideration for physical security needs is
important. Physical security of the equipment
must be addressed from the beginning of a project.
Developing a social relationship with the communi-ty
should create local ownership of and respect for
the solution.
Plan for the availability of tools and spare parts.
Parts and tools may be more readily available where
a system is built than where it is deployed.
Understand this dynamic and plan for it.
Maintain clear and continuous communication
among the project team. The Jhai project relies
extensively on volunteers. Outside experts in the US
working with Laos end-users has lead to practical
solutions. In this process, all parties must feel com-fortable
in maintaining good communications.
Mistakes are made, but participants must keep the
conversation going. This process has built respect
and maintained momentum during project setbacks.
While the Jhai project still confronts issues associated
with start-up efforts, they have had inquires from India,
Indonesia, and 38 other countries where telecommuni-cations
and power are limited. The project team in Laos
and other locations plan to refine the Jhai approach for
use in other locations.

3 The Current Dynamics of
Open Source Software
Benefits Vary Based on
Use and Focus
Software use continues to extend into new areas of
human endeavor. Benefits derived vary depending on
the constituency addressed (government, consumer,
education, or business), the size of both the user and
developer communities, and whether the needs focus
on public use or business profit.
In some settings, the activities and roles of both OSS
developers and users will remain unchanged from
those of proprietary efforts. However, the openness of
the OSS model emphasizes the concepts of access
(more transparency of the process and the product),
community (leveraging local and global resources),
choice (more competition), and collaboration (sharing
ideas with peer organizations). Each in its own right
should benefit users.
Increasing Choice and Competition
The software industry’s significant consolidation has
reduced the number of options available to users.
With the emergence of OSS on the ICT landscape,
new projects are emerging to meet a diversity of
needs, some having global applicability, while others
addressing much smaller communities of interest.
These solutions as ICT alternatives should increase
the diversity of choice and level of competition when
ICT options are considered. These dynamics should
also increase the focus of the ICT discussion on
organization needs.
Aligning Open Source with
Open Standards Objectives
While open source software does not imply an adherence
to open standards, open source developers seem more
aligned with open standards goals than some proprietary
providers. This bias should increase interoperability
and information sharing among various technology
constituencies and benefit users by increasing the
control of its ownership.
The evolution of open standards efforts will likely
extend beyond the focus of application interoperability,
toward the control and understanding of processes
associated with an application, i.e., the knowledge sup-ply
chain. In this context, understanding what occurs
“under the hood” of software applications should have
increased relevance to software users.
Positioning Software as a Public Good
OSS is freely available, with access to the program-ming
source code as one component. OSS can be
viewed as a public good created by citizens contribut-ing
their work in an open and collaborative fashion.
Participation in a global community can help broaden
the opportunity to share and adapt OSS ideas among
developing countries. As a public good, OSS can pro-mote
local ICT capacity development by focusing on
community needs that can drive the creation of local
research and development efforts.
Social benefits from fostering OSS development in an
ICT strategy can include 1) increased access to gov-ernment
information by citizens, 2) increased trans-

parency in the functioning of e-government solutions,
3) assisting in the development of a local software
industry, and 4) development of local IT skills.
Increasing Technological Self Reliance
While resource constraints can present significant bar-riers
in pursuing ICT initiatives, most countries want
to increase their participation in the knowledge econ-omy,
and to do so in a self-reliant manner. Developing
countries are primarily reliant on technology from
a select set of external suppliers. Notably, US based
firms generated 56% of the revenues and 96% of
the profits from the global IT industry [Heeks and
Kenny 2001].
Technology self reliance can be defined as 1) reducing
dependence on external technology providers, 2)
developing skills internally to address local needs, and
3) leveraging locally developed skills to pursue revenue
generating opportunities both internally and abroad.
Reducing Vendor Lock-In
The software industry has seen a reduction in the
number of market participants and an increased
reliance by those firms to promote product upgrade
cycles to maintain their business franchises. While
the software industry will continue to innovate, some
product categories are reaching maturity and users
should not be driven to pay for new features and
product versions that have minimal impact on their
needs. Using OSS can reduce the reliance on single
suppliers and minimize proprietary technology lock-in
that drives unwarranted upgrade cycles and vendor
biased licensing provisions.
Increasing Transparency
A significant difference between the open source and
the proprietary model is the transparency of the devel-opment
process. With OSS, the source code that is
used to build programs is open and accessible to
everyone. While this access will have varied levels of
utilization, it can 1) provide the opportunity to broaden
the sense of ownership, 2) increase trust between
developers and users, and 3) increase a project’s focus.
With broader participation in the development process,
all parties can work toward common goals and changes
are introduced for the good of the community.
Minimizing Security Risk
Data security is an important concern for govern-ments,
particularly in the wake of worldwide comput-er
viruses and increased potential for cyber-terror-ism.
Among the benefits of OSS security, versus pro-prietary
software, is the potential for fewer bugs in
OSS and when identified, they can be quickly fixed.
Introducing OSS can increase diversity into technolo-gy
infrastructures that can reduce the risks associat-ed
with computing environments supported by a high
concentration of homogeneous solutions.
The Question of Cost Savings
Debates regarding the Total Cost of Ownership (TCO)
of open source versus proprietary solutions often
results in questioning the variables used in the analy-sis.
Assessing the cost of technology solutions has
historically been more art than science. While acquir-ing
OSS can be free, our view is that 1) if the OSS ver-sus
proprietary debate is centering on cost, it is likely
that the value proposition of the proprietary solution
is under pressure and 2) cost is likely to be one
among many issues in the assessment of OSS when
reviewing, developing and updating ICT policies.
Local ICT Capacity Development
As developing countries assess the opportunities and
challenges presented by the global networked economy,
it is important to consider strategies for increasing par-ticipation
in the global ICT context and addressing local
ICT capacity development needs.

As stated in Digital Opportunities for All: Meeting the
Challenge — Report of the Digital Opportunity Task
Force (May 2001):
“when wisely applied, ICT offer enormous oppor-tunities
to narrow social and economic inequalities
and support sustainable local wealth creation, and
thus help to achieve the broader development
goals that the international community has set.
ICT cannot of course act as a panacea for all
development problems, but by dramatically
improving communication and exchange of infor-mation,
they can create powerful social and eco-nomic
networks, which in turn provide the basis
for major advances in development.”
An OSS based approach to capacity development can
emphasize the use of local personnel and organizations
while focusing on sustainability and self-reliance. OSS
strategies, if properly executed, can alter the posture
of a developing country from primarily a consumer
of ICT products and services, to a provider as well.
A component to sustainable capacity development is
to leverage global public goods, such as OSS, to
promote local capacity and create solutions targeted
at traditional development challenges.
Promoting Local Ownership and Autonomy
Autonomy and ownership are significant components
in pursuing capacity development opportunities.
Consideration should be given to the ability of local
stakeholders to provide an ICT environment that can
be owned and adapted by their community. Skeptics
have discounted the potential for open source soft-ware
as a means for capacity building. We counter
this view with the fact that the nature of OSS lends
itself to providing an ICT environment with increased
local ownership and autonomy.
Research and development agendas by traditional
proprietary software providers generally respond to
global market incentives. This can result in solutions
that do not adequately address developing country
needs because the economics of the opportunity do
not justify the required commitment of resources.
These dynamics can create gaps in addressing the
needs of developing countries.
The OSS model lends itself to software adaptation for
addressing local needs, while introducing more flexi-bility
and independence to the software development
process. The independent nature of OSS can also help
to cultivate domestic talent to participate in the
development of a local software industry that should
reduce the level of external ICT spending.
Momentum of Open Source Creates Opportunities
OSS is a growing dynamic in the technology market-place.
Commercial suppliers are broadening their
support and deployments are increasing across a
broad array of ICT initiatives. At the same time,
critics claim that the open source “eco-system” is
immature and incomplete.
From a business and capacity development perspec-tive,
these gaps should be interpreted as “opportuni-ties”.
New applications are needed, skilled staff is in
short supply, support infrastructures need to be
improved, and documentation needs to be written.
Given the appropriate mix of motivation, focus and
skill, these dynamics present great opportunities to
bring new products and services to markets, on both
a local and global basis.
The OSS Planning Dynamic
For developing countries with the appropriate
infrastructure, a strong ICT focus can help drive
capacity development, while addressing existing ICT
needs. Consideration should be given to identifying
linkages between national ICT objectives and develop-ment
strategies. In the process, capacity development
will require building awareness on how ICT, in general,

and OSS specifically, can address development
needs and deliver new solutions. Attention to skill
requirements and infrastructure resource needs
is essential.
OSS is Not an “All or
Nothing” Proposition
A purist perspective on OSS may envision a world of
solely open source solutions. It is more realistic that
software infrastructures will consist of a mix of both
proprietary and open source software.
OSS can be Mixed with Proprietary Software
With the high penetration of OSS in the Internet’s
infrastructure and Microsoft’s dominant presence
on the desktop, many organization’s needs will be
met by combining these technologies. One combina-tion
is to have servers running an OSS operating sys-tem
such as Linux or FreeBSD; an Apache web server,
and Samba for printer and file sharing, which are
accessed by desktop computers running proprietary
software like Microsoft Windows, Office and Internet
Explorer. Another combination could include the
OpenOffice running on a Windows desktop system.
Many OSS Applications do not
required an OSS Operating System
It is incorrect to assume that OSS application pro-grams
are designed exclusively to operate on OSS
systems. Many are available for use with multiple
operating systems and can be deployed with propri-etary
solutions. For example, proprietary databases
from Oracle and IBM will run on Linux, the open
source databases MySQL and PostgreSQL run
on proprietary server operating systems, the
OpenOffice.org office suite is available for Windows,
Solaris and Apple desktops and the Mozilla web
browser has similar cross-platform support.
A Gradual Migration to OSS is an Option
With the availability of implementation options includ-ing
running proprietary software in a Linux environ-ment,
or open source software in a Windows environ-ment,
the introduction of OSS can occur in a gradual
fashion. For some organizations, it is likely that such a
migration strategy can leverage their experience with
OSS server based services as they develop expertise in
OSS required for its broader adoption.
Open Source 101:
What is it all About?
When examining the dynamics of computing, an
assessment often starts from the perspective of an
individual’s greatest familiarity. For most, this starting
point is the desktop computer. A potential challenge
when assessing OSS is that much of its success has not
been on the desktop, but in the areas of networked
servers and Internet infrastructure solutions.
OSS has significant penetration in the Internet
The momentum for OSS is strongly related to the
growth of the Internet. This relationship is two-fold.
First, much of the Internet’s infrastructure consists
of open protocols and software. Second, the global
reach of the Internet has provided an environment
in which software users and developers can effective-ly
collaborate in the development, distribution and
use of OSS solutions. OSS penetration in the Internet’s
infrastructure is pervasive and most organizations
are reliant on it in some form to meet ICT needs.
Apache: Where Open Source is the Market Leader
In the application server market used to manage
the +3 billion pages of the World Wide Web, the OSS
solution Apache is the leader. According to Netcraft,
of 44.9 million active public web sites, 67% use this
open source program, with Microsoft’s Internet

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Nov
2000 2001 2002 2003
Apache
Microsoft
Other
SunONE
NCSA
Apache — An Open Source Market Leader Source: Netcraft (Nov. 2003)
Information Server in second place at 21%. Apache
is available for all major operating systems.
Momentum Driven by Linux
Initial OSS momentum was created by the cost advantage
of Linux/Intel systems over systems running propri-etary
versions of the UNIX operating systems. These
deployments typically addressed technical workstation,
high performance computing and network based
service needs.
While open source is associated with Linux and the
GNU licensing agreement, there are many types of
open source software programs available and the
Open Source Initiative has certified over 30 different
open source licensing agreements.
A Sampling of Popular OSS Offerings
As awareness of OSS has increased, interest in open solu-tions
across a variety of technology platforms and soft-ware
categories has broadened. Consider the following:
Operating Systems: The software that runs on every
computer and controls their operation is dominated by
Microsoft Windows on the desktop, followed by Apple
and Linux. Operating systems software also supports
computers that are used to share information among
multiple users. Servers are used for most Internet appli-cations
and are often located in a secured location.
Many alternatives are available for server operating
systems, ranging from proprietary systems like Sun
Microsystem’s Solaris and other UNIX variants, to the
following prevalent OSS solutions:
Linux — Initially designed to provide Intel users a
low-cost alternative to the UNIX operating system.
Released under the GNU General Public License
(GPL). There are numerous distributions of Linux
such as Debian, RedHat, and SuSE. While the pene-tration
of Linux is highest with servers, there is
increasing attention to Linux on the desktop.
FreeBSD — An operating system used primarily for
server computers, often in data centers. It is derived
from BSD UNIX, a version of UNIX developed at
UC – Berkeley. Released under the Berkeley Software
Distribution (BSD) license.
Server Application Software: Used to share informa-tion
and other computing resources on a computer net-

work with many users. Email, database, web servers and
software to share files and printers are in this category.
Proprietary solutions include Microsoft’s operating
system, SQLServer database and Exchange, Lotus
Notes/Domino and databases from Oracle and IBM.
Apache — Used to manage and display web pages.
Runs on Linux, Sun Solaris, UNIX, and Windows
2000.
MySQL — Relational database started in 1995 by
MySQL AB, based in Sweden. The product is avail-able
under the GNU General Public License (GPL)
and a commercial license.
PostgreSQL — An object relational database, started
in 1986 at UC-Berkeley. PostgreSQL runs on many
different operating systems. Released under the
Berkeley Software Distribution (BSD) license.
Sendmail — Development started in 1981 at UC
Berkeley to enable the routing of email between
networks. Released under the Berkeley Software
Distribution (BSD) license, the market leader in
Internet based e-mail systems.
Samba — Provides file and printer sharing capabilities
similar to this offered by Microsoft and runs on most
UNIX systems, Linux, Sun Solaris and BSD variants.
Desktop Application Software: Consists of a vast array
of product categories including personal productivity,
games, accounting, graphics and web browsers.
Microsoft’s Office, Internet Explorer and Outlook domi-nate
the desktop. OSS solutions include the following:
OpenOffice.org — An office applications suite avail-able
for Microsoft Windows, Linux, Sun Solaris and
Apple Mac OS X systems.
Evolution — Integrates email, calendar, meeting
scheduling, contact management, and task lists, in
one application. Developed and supported by Ximian,
Inc., which was recently acquired by Novell, Inc.
Mozilla, a web browser available for the Windows,
Apple Macintosh, Sun Solaris, and Linux platforms.
Development Tools: Software for creating and devel-oping
websites and applications including program-ming
languages such as Perl, PHP and Python. There
is also a wide array of OSS content management
solutions available.
GNU: Where OSS Started
The work that led to the open source movement is
derived from efforts at MIT in the early 1980s when
Richard Stallman started the GNU project to prove
that an operating system could be developed and
shared freely. In 1996, the project added a kernel
providing a complete GNU system. All programming
code from this project adheres to the GNU General
Public License.
Linux: A Brief History
In 1991 Linus Torvalds, then a student at the University
of Helsinki, started work on Linux as an open source
operating system. In 1994 version 1.0 was released,
based on a kernel he developed and code from the GNU
project. As a result, Linux falls under the GNU General
Public License. The current Linux version, 2.4, was
released in January 2001.
The Linux operating system is used in many ways
including support for networking, software develop-ment,
servers and desktop platforms and is considered
as a low cost alternative to other operating systems.
What is a Linux Distribution?
The Linux community consists of dozens of different
software “distributions” which can be downloaded
for free or purchased from commercial organizations.
A Linux distribution is a collection of software pro-grams
that include the operating system, along with

tools to install the operating system and setup the
user interface. Word processors e-mail and web server
programs can be included in a distribution as well.
Various distributions target specific need such have
emerged to address targeted needs, such desktop or
server use, or the need of the educational market.
With Linux development involving multiple teams in the
open source community, the distributor works to assure
that the collected components work properly together.
Distributors can provide different levels of product
support resulting in a variety of pricing schemes in
commercial offerings.
The following are among the dozens of available Linux
distributions.
Conectiva S.A. — Targeted at the Brazilian market
Debian — Typically used by a technical audience,
with increasing use by non-profit organizations
MandrakeSoft — This distribution provides solutions
for desktops and servers (web server, e-mail server,
print server, etc.). Mandrake supports over 40 inter-national
languages
Red Hat, Inc. — Supports Linux from the mainframe
to the server to the embedded devices
SUSE Linux AG (Germany) — Primarily targeting the
European market (acquired by Novell, Inc.)
Turbolinux, Inc. — Focused on the Japanese corpo-rate
market
GNU/LinEx — A custom Linux distribution based on
Debian, for use in the Extremadura, Spain project
Redflag — Beijing based Red Flag Software focuses
on the Chinese Linux user in the desktop, server and
embedded markets
What is LAMP?
The OSS market is often associated with the Linux
operating system. In fact, many software tools are
used to develop and deliver OSS based solutions. A
combination of these tools used by developers to cre-ate
applications is often referred to as LAMP, a mix of
the Linux operating system, an Apache web server,
the MySQL database and Perl, Python, or PHP as tools
to build custom applications. Other notable OSS com-ponents
in use in development efforts as well, such as
the PostgreSQL database.
From the Low to the
High End of Computing
The OSS universe consists of hundreds of projects,
communities and solutions. The spectrum of needs
addressed range from operating systems, which
control how a computer works, to end-user applica-tions
encompassing web servers, databases, browsers,
network management, media servers, e-mail systems
and workgroup collaboration and Enterprise Resource
Planning (ERP) and Customer Resource Management
(CRM) solutions. Desktop computer use of OSS
remains limited but is gaining interest as usage gains
momentum and professional support improves.
The breadth of OSS hardware support extends from
low-end embedded systems to high-end mainframe
and distributed environments.
OSS Moves into the Embedded Systems Market
The embedded systems market addresses solutions
that integrate computer hardware and software result-ing
in products as diverse as communication routers,
factory automation equipment, medical equipment,
test and measurement devices, entertainment sys-tems,
set-top boxes, video recorders, cameras, phones,
and Personal Digital Assistants (PDA).

Mainframe/Clustered
Grid Computing
Desktop/Laptop
Consideration should be given to the increasing pene-tration
of the Linux operating system in this market
when assessing the need to develop OSS skills in sup-port
of capacity development initiatives.
In June 2003, Matsushita Electric Industrial Co., Ltd.,
Sony Corp., Hitachi, Ltd., NEC Corp., Royal Philips
Electronics, Samsung Electronics Co., Ltd., Sharp Corp.,
and Toshiba Corp. formed the CE Linux Forum to promote
usage of Linux for Consumer Electronics products.
The following are a few notable product offerings using
embedded Linux:
Simputer — Encore and BEL – PicoPeta, provides a
PDA with a touch-sensitive screen designed to
support several Indian languages and be shared by
several members of a village.
Sharp Corp. — Introduced the Linux based Zaurus
product line of PDAs. Work is also being pursued with
SAP AG to provide applications on this platform.
Linksys Group Inc. (division of Cisco Systems) —
Uses Linux in its 54G Wireless Router.
Sony Corp. — Will release in Japan (Nov. 2003), a
digital video recorder based on Linux.
Intel Corp. — Provides a PC peripheral called the
digital media adapter, which provides a link between
PCs, TVs, and stereos run on an embedded Linux
operating system.
Motorola, Inc. — Introduced a Linux based smart-phone
combining PDA and voice functions with
internet access. The Motorola A760 is available in
Embedded Systems
Handheld Devices
Technical Workstatioin
OSS: From Embedded to Grid Computing

the Asia-Pacific region, and expects to ship in
Europe early in 2004.
TiVo Inc. — The creator of the personal television
recorder, supports its 1 million receivers used by its
customers with a Linux based system.
Volvo Mobility Systems — Uses Linux on a GPRS
system to provide traffic information including
vehicle location, arrival/departure monitoring, and
text messaging.
OSS and the Grid: The High-end of Computing
Another wave of technology innovation may come
from grid computing in which the processing power of
servers and workstations are combined into a single
resource. Linux and open source are becoming more
prevalent in these projects.
The Chinese Ministry of Education plans to connect
up to 200,000 students at 100 universities with its
China Education and Research Grid. The effort will
address remote education needs including a University
of Hong Kong language instruction application,
video software developed by Peking University and
bioinformatics applications.
The State University of New York (SUNY), Buffalo
launched a supercomputer consisting of over 2,000
servers running Linux to conduct drug research to
combat cancer, Alzheimer’s disease and AIDS.
Los Alamos National Laboratory will have two
large-scale Linux clusters to be used in support of
medical, environmental and national defense model-ing
and simulation.
University of Liverpool is constructing Linux clus-ters
to support research work with the World Health
Organization to simulate the spread of epidemics of
diseases such as SARS, and to support a planned
research Grid with the European Center for Nuclear
Research (CERN) in Switzerland.
The Desktop Remains Challenging
While OSS has significant penetration in the Internet
infrastructure and networked environments, progress
in the desktop market has been slower to demonstrate
traction. Desktop computing dynamics are different
from those of the server market. There is greater diver-sity
of application software and hardware components,
and user expectations are quite varied. As a result,
mainstream access to Linux and OSS desktop has been
limited. In select geographic regions, systems suppliers
are test marketing desktop OSS and some governments
are pursuing projects with this focus as well.
The Installed Base Dilemma
Whether the desktop software is legally licensed or
pirated, organizations considering open source solutions
in the desktop environment must address the +90%
penetration of Microsoft software in this market.
Therefore, any introduction of OSS or migration to
open source desktop software will require consideration
of costs and processes related to: 1) installation of new
software, 2) assessing the compatibility of data files
with the new software and 3) retraining staff on how
the new software functions and how it is different from
the software previously used.
Balancing Innovation with Familiarity
The most significant challenge in migrating to OSS
desktops is the dynamic of change. Some technologists
are driven by the application of cutting-edge innovation
in their solution. However, while many technology users
may appreciate innovation, they are more likely to
adapt to innovation when it is presented within a familiar
context. For this reason, desktop OSS solutions are
becoming more “user friendly” with a “look and feel”
resembling the Microsoft Windows platform.
Several Linux distributions focus on usability and
include “Microsoft Outlook like” offerings such as
Evolution, the office productivity suite OpenOffice and
Web Browsers such as Mozilla. The GNOME and KDE

desktops environments also reduce the usability gap
between OSS and those of Windows and the Macintosh.
The OSS desktop may not be completely on a par, but
the gap is not broad, and improvements continue.
Is Microsoft Compatibility Needed?
For many users, PC’s are primarily used to and prepare
documents access electronic mail and share files. While
OSS solutions are available to address all of these
needs, the degree to which many solutions address indi-vidual
needs , and the availability of support need to be
assessed. In this context, many organizations will
require a mechanism to deliver Windows based solu-tions
to the Linux desktop. For organizations interested
in running Windows applications on Linux desktops,
solutions from Codeweavers, Inc.’s and VMware are
among the tools available
Private Sector Use is Increasing
Initial OSS implementations often support departmental
file, print, mail or Web servers. With organizations such
as Dell Computer, Hewlett-Packard, IBM, and Sun
Microsystems increasing their involvement in OSS, its
deployment should expand. Already implementations
are extending beyond OSS’ roots in the education
and government sectors, and being adopted in many
industries as an alternative to both UNIX and Microsoft’s
Windows platforms. As OSS demand increases, many
deportment are likely to consist of both OSS and
proprietary software running both on the desktop and
on servers.
Internet Services
Amazon.com migrated most of its technology infra-structure
to a Linux platform to help reduce costs.
Afilias, Ltd uses the OSS database PostgreSQL in the
management of the .Org domain service. Google runs
over 10,000 Linux based Intel PCs in support of their
search engine service. Verisign, Inc. has implemented
over 1,200 Linux servers in their Network Solutions
infrastructure. Yahoo is using the FreeBSD operating
system in support of various servers and MySQL
database for some information services. NTT/Verio
uses FreeBSD, as well, to support their Internet host-ing
services.
Financial Services
Credit Suisse First Boston migrated to a Linux/Intel
platform to support its Agora enterprise notification
system which resulted in both server consolidation
and improved performance. They are also using Linux
supporting Web Services, messaging and application
server needs. Merrill Lynch has increased it use of
Linux systems throughout its infrastructure. Reuters
has made its Reuters Market Data System available on
Linux/Intel Systems. India’s National Stock Exchange
uses Linux-based Intel clusters to address some of its
processing needs. Life Insurance Corp. of India, the
country’s largest financing company, will roll out
10,000 Linux/thin client systems in 2,000 offices by
the end of 2003.
Entertainment Industry
Industrial Light and Magic converted its workstations
and animation rendering farm to Linux in support of the
production of films such as “Star Wars, Episode II: Attack
of the Clones”. DreamWorks used Linux systems in the
production of films such as “Shrek” and “Sinbad”. Pixar
Animation Studios, the developer of “Monsters Inc.” and
“Toy Story,” is switching to Linux/Intel systems. Sony
Pictures’ Imageworks has pursued a similar technology
direction. Regal Entertainment Group, the movie theater
operator, uses Linux based kiosks at their theaters.
Oil Exploration
Royal Dutch Shell has worked with IBM to build a Linux
based supercomputer linking 1,024 servers to analyze
seismic data and other geophysical information as part
of its efforts to find new oil reserves. WesternGeco
supports their business of seismic imaging requiring
intense computations with a cluster of 256 systems
running Linux. Amarada Hess has also implemented
Linux based systems to address oil exploration needs.

Technology Suppliers are
providing Support
Much of OSS use has been in Internet applications, tech-nical
workstations and high-end processing environ-ments.
Among the next challenges is support for more
traditional enterprise application environments. While
information technology spending remains constrained in
today’s economic environment, enterprise software firms
have increased their efforts to address the OSS market.
The following overviews OSS initiatives by major tech-nology
providers:
Acer has launched a PC with a Linux option for the
home PC segment.
BEA Systems, Inc. offers an application server
platform and Java Virtual Machine optimized for
a variety of Linux versions.
BMC Software, Inc. provides varied infrastructure
and service management needs for Linux.
Borland Software Corp. released a Linux version of
their Delphi application development tool.
Computer Associates, Inc. provides over 50 prod-ucts
addressing the Linux market. Through its ACC-PAC
subsidiary, it provides an accounting application
for Linux servers and desktops.
Hewlett-Packard Company has established a Linux
division which pursues and coordinates a variety of
OSS initiatives.
IBM Corp. has a variety of Linux initiatives including
work with the Brazilian Government to develop tech-nology
based on open standards and with the
Russian government to establish a Linux
Competency Center in Moscow.
LG Electronics launched a Linux based desktop
computer, called MY PC, for the Indian market.
Novell, Inc. continues to expand its OSS support
with its acquisition of Ximian, Inc., and SUSE, both
providers of solutions for Linux desktops and
servers.
Oracle Corp. provides Linux support for its data-base,
application server and E-Business Suite. It also
worked with Red Hat in the development of their
Advanced Server offering.
SAP AG established the LinuxLab to focus on the
development and release of mySAP, their core pro-prietary
solution platform, on Linux and address
related support considerations. They are also work-ing
with MySQL to support OSS database technology.
Sun Microsytems, Inc. introduced a Linux desktop
offering which includes Mozilla Web browser,
StarOffice (a commercial version of OpenOffice),
Evolution and support for Java.
Veritas Software, Inc. provides storage manage-ment
software for Linux and MySQL databases.
The Legal Landscape is Evolving
A large part of the debate around OSS, its implications
and its significance for developing countries, focuses on
Intellectual Property Rights which encompass software
licenses, patents and copyrights. The following excerpt
from UNESCO’s “World Information Report 1997/98” pro-vides
insights on the forces driving the discussion.
“The creation and ownership of knowledge prod-ucts
are of increasing importance because of
the centrality of information and knowledge to
post-industrial economies. The concept of copy-

right, originally intended to protect authors and
publishers of books, has broadened to include
other knowledge products such as computer
programs and films. Copyright has emerged as
one of the most important means of regulating
the international flow of ideas and knowledge-based
products, and will be a central instrument
for the knowledge industries of the twenty-first
century. Those who control copyright have a sig-nificant
advantage in the emerging, knowledge-based
global economy. The fact is that copyright
ownership is largely in the hands of the major
industrialized nations and of the major multime-dia
corporations placing low per capita income
countries as well as smaller economies at a
significant disadvantage.”
Open source software is differentiated from proprietary
software because the programming code used is avail-able
for inspection, modification, re-use and distribution
by others. While OSS can be free of charge, it can be
purchased for a fee as well. The concept of “free”, in
this context, emphasizes what can be done with the
source code rather than its acquisition cost.
Many Open Source Licenses Exist
While open source is associated with Linux and the GNU
GPL licensing agreement, there are many types of open
source software programs available and the Open
Source Initiative has certified over 40 different open
source licensing agreements. The following are among
the most prevalent licenses in use.
GNU General Public License (GPL) license was writ-ten
by Richard Stallman in 1989, for the purpose of
distributing programs released as part of the GNU
project. It is the most widely-used of the open
source software licenses and is considered to be the
“purest” by requiring that all source code is free
and available and that changes must be shared with
the community of developers. Linux is among ht
software available under this license.
BSD (Berkeley Software Distribution) License,
adopted from Berkeley Unix, requires copyright noti-fication,
and permits the source to be used in any
manner, as long as notification is provided. The
FreeBSD operating system and PostgreSQL data-base
uses this license, and Apple Computer’s OS X is
a derivative work based on BSD licensed technology.
Mozilla Public License (MPL) defines terms and
provides for code that can remain proprietary
under very specific terms and dual licensing when
necessary under the provisions of the GPL. The
MPL is likely to be among the more flexible models
for open source organizations. The Mozilla, Firebird
and Thunderbird Web browsers are available under
this license.
Each of these licenses state that source code is open
and users are free to use, copy, duplicate, distribute,
modify them. The GNU GPL includes the added provi-sion
that modified versions of the software, if distrib-uted
outside an organization, will come under the
conditions of the original work’s license.
Limited Open Source Case Law Exists
While much of the success of OSS has been associated
with the development of the Linux community and the
GPL, one must note that only once has a GPL licensed
product has been tried in a court of law, in the MySQL
vs. NuSphere lawsuit. In this action, the legal issue was
not directly related to the GPL and the matter was set-tled
out of court.
With virtually no case law challenging OSS to date,
more specifically the GPL, it remains to be determined
where its legal strenghts and weakeness are and how
enforcable its terms will be.
The Dual Licensing Option
Several commercial organizations are pursing a dual
licensing model to support their business. These organi-zations
provide their software to users, with a choice of

an open source license or a propriety license. Users can
decide, based on their needs, the type of relationship
they will have with the software and its developers.
Examples of commercial organizations pursuing a dual
licensing model are Sleepycat Software Inc. (database);
MySQL AB (database), TrollTech AS (development tools)
and eZ systems (content management).
Hybrid Models are Emerging
As the open source market evolves, adaptation will con-tinue
in its legal infrastructure. Potential benefits include
increased data interchange, and added value features
incorporated into proprietary derivative offerings.
The core technology of Snort.org, an OSS project
focused on intrusion detection security, is licensed
under the GNU GPL. Its founding developers offer a
commercial and proprietary offering through
SourceFire, Inc.
RealNetworks, Inc., a proprietary software firm, is spon-soring
an open source project, Helix.org, to deliver a
media player to the Linux platform. This project intends
to deliver an offering incorporating both proprietary
and open source technologies.
Microsoft’s Shared Source Initiative
In 2001, responding to the open source movement,
Microsoft Corp. announced its Shared Source Initiative,
a program to share Windows source code with govern-ments,
companies and educational institutions. The pro-gram
allows governments signing up to obtain free
online access to source code and other technical infor-mation
needed to perform security reviews.
In January 2003, Microsoft announced the Government
Security Program (GSP), which allows governments and
international organizations to assess the security and
integrity of Microsoft software. Austria, China, Finland,
Norway, Russia, Taiwan, Turkey, the U.K. and the North
Atlantic Treaty Organization (NATO), among others,
have signed up for this program. The GSP covers cur-rent
versions of Windows 2000, Windows XP and
Windows Server 2003 and Windows CE.
In contrast to open source licenses, Microsoft’s shared
source efforts do not allow users to modify the code or
turn it into derivative Windows programs themselves.
Observations on Software Patents
Until the 1980s, it was generally believed in the US that
patent law did not cover software programs. A frequent-ly
cited memo by Microsoft’s Bill Gates in 1991 included
the statement “If people had understood how patents
would be granted when most of today’s ideas were
invented and had taken out patents, the industry would
be at a complete standstill today.”
Organizations have increased the frequency and
scope of software patenting. Recently, the US Patent
Office has been criticized for actions such as its
patent to Amazon, giving the firm exclusive rights to
the “one-click” method for selling merchandise online.
On Feb. 7, 2003; the Patent Office’s head James Rogan
said, “This is an agency in crisis and it’s going to get
worse. It doesn’t do me any good to pretend there’s
not a problem when there is.” During Microsoft’s finan-cial
analyst meeting (July 2003), Bill Gates noted,
“last year we applied for 1,500 patents, and that’s a
number that’s been going up at a pretty steep ramp”.
The US Patent and Trademark Office issues over
20,000 new software patents every year.

4 Pursuing the Open Source
Software Option
Guidance for Decision—Makers
and Project Leaders
Organizations can approach the OSS option in a
number of ways including: 1) running and operating
a computer using OSS, 2) developing the open soft-ware
for use by others and 3) contributing to an
OSS project in efforts such as testing, providing
enhancements, or supporting advocacy efforts.
Solid Project Planning is Required
Regardless of the manner of participation in an
OSS effort, solid project planning and management
are still required. Attention to the following project
dynamics is helpful:
Define and document the needs to be
addressed by the project
Understand the expectations of the project by
all stakeholders involved
Pursue project objectives within the context
of the available resources, including economic
funding, technical infrastructure and
personnel skills
Deploy OSS with the same structured method-ologies
as other ICT projects
During initial OSS introductions, it is recommend-ed
to begin with small-scale projects, learn from
experience, and leverage the capacities of others.
Review both OSS and Proprietary Alternatives
OSS is still in a very early state of development,
deployment and use. Skills have to be developed
and education on OSS dynamics is needed. When
assessing OSS solutions, the following activities
should be pursued:
Obtain information on the types of open source
applications available
Identify the availability of resources to support
the OSS implementation
Review case studies relevant to the needs being
addressed
Review OSS and proprietary alternatives from a
functionality and usability perspective
Understand the economic trade-offs in pursuing
both alternatives
Understand the manner in which the OSS commu-nity
for a given solution can support your needs
Be Pragmatic about Change
OSS is one component in delivering an ICT solution.
The dynamics associated with the need being
addressed by the project are likely to change. Users
will change their minds based on their perceptions
of what the problem is. Budgets may be reduced.
New technologies and alternative solutions are
continually introduced into the market. Managing
these dynamics and their potential impact on a
project is critical.
How to Acquire OSS Skills
The availability of professional technology support
skills vary significantly between geographic
regions. When these skills are available, they will

generally focus on proprietary software. At this
stage in its evolution, OSS faces a classic supply
versus demand paradox: greater demand for OSS
should create a need for more OSS solutions and
capabilities, but the demand could be impeded by
supply constraints. As momentum for local OSS
solutions increases, the skill set imbalance should
decrease over time.
As an alternative to “on site” support, OSS skills
can be developed by accessing and participating in
on-line communities, such as user groups and mail-ing
lists. Many governments are also developing
OSS training initiatives.
Creating an Open Source Community
Creating an OSS project does not assure that exter-nal
software developers will provide assistance in
establishing an open source community centered
on the project. When building an OSS development
community, it is critical for the project to provide
value to both software developers and the users.
Be practical about what the project can achieve.
Understand the need to address and the limited
resources available to achieve the goal. As simple as
this may seem, many projects fail because the objec-tive
is not well defined, the objective changes with-out
a complete understanding of the implications to
the project, or the scope of the objective is greater
than the resource available to address it. Clarity in
the definition of the project, a highly motivated team
leader and skilled team members are important com-ponents
in assuring success.
Most OSS projects start and stay small. A few
publicized OSS projects have benefited from the
contributions of numerous developers distributed
across multiple continents. Realistically, most proj-ects
will start small and remain relatively small,
with the direction and management of the project
in the hands of a small group of individuals.
Project leaders will manage the direction. Project
leaders will evaluate requests for new features and
ways to improve functionality. Team leaders must
mediate these various ideas in a responsive fashion.
Balancing resources and pacing the development
process are important to the project as well.
Communication is critical. As with most social
organizations, communication among the members
of the community is critical. Disseminating informa-tion
about the project status, building and main-taining
interest among stakeholders, and soliciting
input on potential changes are all required to main-tain
project momentum.
End-users are part of the community. Keep users
engaged in the project. The means of addressing
this need can be different depending on the cir-cumstances
of the project. End users are primarily
interested in the timely delivery and usability of a
solution rather than its technical elegance.
Pay attention to “Look and Feel”. Many OSS
efforts have addressed server-based offerings
such as operating systems and databases, where
technical elegance is greatly valued. It is likely
that many projects in developing countries will
have a user interface component. Whether the
software will run on a PC, PDA, Web interface or
cellphone, attention to the “ease of use” of the
application is critically important.
Achieving simplicity in the user interface design
can be a time consuming effort. However, investing
in this area should increase the level of acceptance
of the solution by users and provide solid feedback
to the development team.
The development platform should be open source.
If you want volunteer developers to contribute to
your project, ensure that the software develop-ment
tools are freely available. Releasing a solution
developed with a proprietary development envi-ronment
can reduce contributions because the

tools may be economically out of reach of some
potential developers.
What if the Project Fails?
As uncomfortable as project failure can be, it occurs
often. Many project failures are not directly related
to the technology used (either open or proprietary),
but are a result of other issues. Numerous studies
have examined the failure of technology projects in
commercial settings. Fail, in this context, is a project
not completed on time and/or on budget, or meeting
client needs. Based on these criteria, a failure rate of
greater than 50% is common. According to the
Standish Group, CHAOS Report, 2000, only 26%
of software projects succeed.
Reasons for a high failure rate among software
projects include: user input was inadequate, the
project objectives were unclear, there were fre-quent
changes in requirements and specifications,
and availability of skilled resources was poorly esti-mated.
Requirements management is important. As
stated earlier, be pragmatic and responsive.
A Broader Context for OSS
Projects
While the Linux operating system has received much
of the attention, the OSS approach lends itself to
many types of software efforts. Therefore, it is impor-tant
to understand the potential for such activities.
The following examples are intended to illustrate
that OSS projects can 1) bring value to small, spe-cialized
communities; 2) address new technology
needs, 3) attract business investment, and 4) extend
the concept of open source beyond software.
Compiere — An Open EPR Solution
Compiere is open-source Enterprise Resource
Planning (ERP) software integrated with cus-tomer-
relationship-management (CRM) software.
Functionally, the system handles tasks such as
managing inventory, entering sales orders, creating
invoices and recording shipments, creating purchase
orders, and managing journal entries.
A Mix of Open and Proprietary Software. While
the applications software for Compiere is open
source, an Oracle database is required to store
the data. Database independence is currently
being addressed, with support expected in the
first quarter of 2004.
The complete software suite consists of accounting,
stock, sales, and staffing modules and runs on
UNIX, Solaris, Linux or Windows 2000 servers and
Java enabled clients.
Expanding Global Support The system is currently
available in English, German, French, Romanian and
Spanish. Recently, it was announced that GrandLinux
Solutions, a partner in Thailand is localizing the
system. The company is implementing some mod-ules
for two Thai companies in the manufacturing
and agriculture industries. The company plans to
provide the complete ERP package to Thai customers
by the end of this year. Currently, the project is
40% complete and should be the first open-source
ERP software for the Thai market.
Partners also exist in South Africa, Latin America,
China, Taiwan, Hong Kong, Singapore, Malaysia,
Viet Nam, Korea, Japan, and Indonesia.
The Compiere License is based on the Mozilla Public
License Version 1.1 and the Netscape Public License.
Koha.org — Addressing the
Library Management Market
While high profile open source projects garner
much news coverage, there is no reason an open
source project cannot address a specialized need
with much smaller market dynamics. Often, an

open source effort is driven by addressing a per-sonal
need (Linux started that way), and becomes
more pervasive as it attracts a large community of
users and developers. Koha, an Open Source
Library System, is such a project.
The Need to Address Y2K Compliance Initially
developed in Wellington, New Zealand by the
Horowhenua Library Trust and Katipo Communications
Ltd. to meet Year 2000 computer compliance
requirements, the Koha system is a full catalogue,
circulation, member management and acquisition
system. Koha uses Linux, MySQL, Perl and Apache
as components of the system, and is licensed under
the GPL.
Koha means “Gift” and its developers provided it to
the open source community with the hope that the
Koha community can create a system beyond the
initial needs of the Library Trust, thus benefiting
the community and initial users as well.
Usage is Global. Currently, work is contributed
by volunteers and the Katipo Communications
staff, with funding from the Horowhenua Library
Trust and other libraries. The system is used by
public libraries, private collectors, university
faculties, not for profit organizations, churches,
schools and corporations. Users include The
Ecole des Mines de Paris, Gould Academy and
Nelsonville Public Library.
Linux Terminal Server Project
A consulting project, started in 1996, to re-engineer
a hospital supply company’s purchasing, inventory,
point of sale, general ledger, accounts payable, and
order entry processes lead to the open source
Linux Terminal Server Project (LTSP.org).
The Objective. Over several years the relationship
between the hospital supply company and the con-sultants,
lead by Ron Colcernian of Dynamic
Results, investigated different Linux system config-urations
with the goal of delivering a $500 per
user solution requiring minimal maintenance.
The Configuration. The Linux Terminal Server
Project (www.ltsp.org) started by Jim McQuillan
and Ron Colcernian is dedicated to developing
Linux thin-clients that use diskless workstations
that are activated by a networked server. The thin
client workstations provide users with access to
applications (office productivity, Web browsing,
email etc.), with the computing work taking place
on a networked server.
Because the thin client workstations typically have
no hard disks, floppy drives or CD support, their
failure rate is lower than traditional PCs. This con-figuration
simplifies the management of the sys-tems
and allows users to access their personal
desktop from any workstation in the network.
The Benefits. Linux Terminal Server technology
benefits include: 1) technology staff spend less time
administering their infrastructure, 2) a thin-client
architecture to store all user data on the network and
minimize the risk of losing data, 3) replacement work-stations
can be easily installed and 4) the elimination
of many security issues, such as concerns about staff
loading personal software onto the system.
The Users. This technology solution is finding use in
both developed and developing world implementa-tions
where there is a high level of cost sensitivity
and multiple users (e.g. educational computing), such
as Goa, India schools, Youth with a Mission, Vienna
Adventist Academy, Escola Alicerce, SchoolNet
Namibia, and Telecenters in Sao Paulo, Brazil.
MySQL — Attracting
increased Business Interest
MySQL is an open source database created by
David Axmark, Allan Larsson, and Monty Widenius.

They developed the offering in 1995 and started
MySQL AB, which provides fee-based technical
support for it. MySQL is used by Associated Press,
Cox Communications, Yahoo, Cisco Systems, NASA,
Lucent, Google, Hewlett-Packard, Xerox and U.S.
Census Bureau among others, and has an installed
base estimated at over 4 million users.
The Dual licensing Model. MySQL AB uses a dual-licensing
model allowing software developers to
use a commercial license, while allowing users of
the GPL free version to buy product support and
services from MySQL. The non-GPL commercial
license allows a user to resell a product that con-tains
MySQL code without violating GPL rules.
Venture Capital Investment Increases. In June
2003, MySQL AB announced a $19.5 million round
of venture capital financing lead by Benchmark
Capital of Menlo Park, CA.
Developing Relationship with SAP AG. In May
2003, MySQL announced a technology partnership
with SAP AG and have acquired the commercial
rights to SAP’s open source database, SAP DB.
They will work with SAP to jointly build the next-generation
MySQL open source enterprise data-base
based on MySQL and SAP DB technologies.
The Business Model. MySQL AB positions the com-mercial
version for software suppliers, mobile appli-cations,
telecom equipment, testing equipment, con-sumer
electronics, automotive applications, and oth-ers
for non-GPL licensing. MySQL AB has built a
business by selling commercial licenses, support
agreements, partnership agreements, training cours-es,
and consulting centered on an OSS product.
Wikipedia — Built with Open Source,
Delivering Open Content
Wikipedia (www.wikipedia.org) is a multilingual, open
content, collaboratively developed encyclopedia.
The term Wiki is Hawaiian for “quick.” The system
provides a fast and easy way to publish information.
The project started in January 2001 and currently
the Wikipedia has over 17,000 articles in English and
over 75,000 articles in other languages. The content
is open and editable by anyone with Internet access
and Web browsers. The project promotes the concept
that “open content” improves with the collaborative
efforts of a global community. With an “open content”
perspective, the Wikepedia follows the open source
model on the premise that as access is shared among
a global community, usage and collaboration will
increase and the quality of the information should
improve as well.
The all-OSS system is written in PHP, and uses a
MySQL database. The server consists of a dual CPU
Athlon 1700+ with 2 GB of RAM, running Red Hat
Linux and the web server Apache.

References
Applewhite, Ashton, Sept 2003, IT Takes a Village: How do-gooder engineers are helping Laotian settlers
pedal their way onto the Internet, IEEE Spectrum Online http://www.spectrum.ieee.org/WEBONLY/
publicfeature/sep03/it.html Accessed Oct. 01, 2003.
Fraser-Moleket, Geraldine, July 4, 2003 Government Opts for Open Source ITWeb
http://www.itweb.co.za/sections/columnists/guestcolumnist/
fraser-moleketi030704.asp?O=SCiRestriction=open%20source Accessed July 15, 2003.
Free and open source software, Feb. 2003 Statskontoret, the Swedish Agency for Public Management
Heeks, R., and C. Kenny (2001). Is the Internet a Technology of Convergence or Divergence?. Washington,
DC: World Bank.
Hewlitt de Alcantara, Cynthia, Aug. 2001 The Development Divide in the Digital Age: An Issues Paper
United Nations Research Insitute for Social Development.
Kenny, Charles, Aug. 2002, The Internet and Economic Growth in Least Developed Countries: A Case of
Managing Expectations, Discussion Paper no. 2002/75 World Institutes for Development Economic
Research.
Moran, Patrick J., April 21, 2003, Developing An Open Source Option for NASA Software, NAS Technical
Report NAS-03-009.
Nichols, David M. and Twidale, Michael B., Jan. 6, 2003, The Usability of Open Source Software, First
Monday Vol 8 Issue 1.
Stutz, David, Feb. 11, 2003, Advice to Microsoft regarding commodity software www.synthesist.net/
writing/onleavingms.html Accessed August 7, 2003.
Streitfeld, David, Feb. 7, 2003, This Headline Is Patented, The Los Angeles Times.
Use of Free and Open-Source Software in the U.S. Department of Defense, Version: 1.2.04 January 2, 2003
MITRE Corp.
Välimäki, Mikko, Jan. 2003 Dual Licensing in Open Source Software Industry, Helsinki Institute for
Information Technology.
Weiss, Todd R., Jan. 23, 2003, LinuxWorld: Unilever moving to Linux for global operations, Computerworld
http://computerworld.com/softwaretopics/os/linux/story/0,10801,77816,00.html.
Zambrano, Raul, Free Open Source Software for Developing Countries: Building Local Capacity Through
Knowledge Sharing And Networking, UNDP ICTD 2003.

Terms to Know
Apache: An open source Web server available on most UNIX based systems (such as Linux, Solaris, Digital
UNIX, and AIX), and Windows NT/2000.
Application Server: A server program in a computer in a distributed network that provides the business
logic for an application program. The application server is a part of a three-tier application, consisting
of a graphical user interface (GUI) server, an application (business logic) server, and a database and
transaction server.
Copyright: Used to protect expression of an original work of authorship; a copyright provides the owner
with exclusive rights and the ability to authorize others to exercise those rights. A copyright does not
protect an underlying idea or concept.
Free Software Foundation (FSF): Founded in 1983 along with its demonstration GNU project by Richard
Stallman at MIT to prove that an operating system could be developed and shared freely. “Free” does not
mean at no charge, but refers to the use a person who acquires software has with it.
GNOME (GNU Network Object Model Environment): A graphical user interface and set of applications
including word processor, spreadsheet program, database manager, presentation graphics, Web browser,
and e-mail. GNOME comes from work of the Free Software Foundation.
GNU: A UNIX-like operating system built with source code that can be copied, modified, and redistributed.
Richard Stallman and the FSF started the GNU project in 1983. Linux consists of GNU components and a
kernel developed by Linus Torvalds.
HTML: HyperText Markup Language used to create Web pages.
IceWM: A GNOME compliant window manager for Xwindow systems, such as Linux that is used for its
speed and low resource requirements.
Java: A programming language introduced by Sun Microsystems in 1995, designed for use in the distributed
environments. IBM, Microsoft, and others offer Java compilers.
Kernel: The center of an operating system providing basic services to its other components.
KDE: K Desktop Environment is an open source graphical desktop environment. KDE includes a file manager,
a window manager, a help system, a configuration system, tools and utilities, and several applications.
Linux: An operating system designed to provide Intel PC users with a low-cost alternative to UNIX
systems. Linux’s kernel was developed by Linus Torvalds at the University of Helsinki. To complete Linux,
Torvalds used components from the Free Software Foundation’s GNU project. Linux is available on major
hardware platforms.

License: A contract that specifies the rights that one party is granting to other parties.
Mono Project: Initiated by Ximian, Inc. to provide developers with a set of open source tools for building
.NET applications that run on Windows or any Mono-supported platform, including Linux and UNIX.
Mozilla: Mozilla was Netscape Communication’s nickname for Navigator Web browser, and more recently,
the name of an open source Web browser project.
MySQL: An open-source database system. It is released under a GNU GPL license, and is also available
under a commercial license.
.NET: Microsoft’s strategy and programming efforts to address Web services. Their goal is to provide
seamless interaction between applications and computers.
Open Source: Any program whose source code is made available for use or modification as users or other
developers see fit. Historically, proprietary software developers have not made source code available.
Operating System: The program loaded into the computer that manages the use of the hardware and
other software programs. Linux, Windows 2000, VMS, OS/400 and AIX are examples of operating systems.
Patent: Used to protect novel, useful, and non-obvious inventions.
PostgreSQL: An open source object-relational DBMS. It is released under a BSD-style license.
PHP: A development language used for building dynamic websites.
Python: A scripting language with a focus on spare programming.
SourceForge.net: An Internet based service for software developers to manage OSS development projects.
It is hosted by VA Software.
Web Server: A program that manages the files that form Web pages which are presented Web users.
The leading Web servers are Apache and Microsoft’s Internet Information Server.

© 2003
The World Bank, 1818 H Street NW, Washington, DC 20433, USA
First printed November 2003
The World Bank enjoys copyright under protocol 2 of the Universal
Copyright Convention. This material may nonetheless be copied for
research, educational, or scholarly purposes only in the member
countries of the World Bank. The findings, interpretations, and
conclusions expressed in this document are entirely those of the
author and should not be attributed to the World Bank, its affiliated
organizations, or members of its Board of Executive Directors or
the countries they represent.
This paper is distributed on the understanding that if legal or other
expert assistance is required in any particular case, readers should
not rely entirely on statements made in this paper, but should seek
the services of a competent professional. Neither the author nor
the World Bank accepts responsibility for the consequences of
actions taken by the readers who do not seek necessary advice
from competent professionals on legal or other matters that
require expert advice.

Global Information and Communication
Technologies Department
The World Bank
1818 H Street, NW
Washington DC 20433, USA
Telephone 202 458 5153
Facsimile 202 522 3186
Email infodev@worldbank.org
www.infodev.org

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