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I recently learned that the Italian government is only allowed to buy proprietary software after it has determined that there isn't a free software option. IIUC they're also required to publish any code they write (or commission to be written) under a free license.

https://www.agid.gov.it/it/design-servizi/riuso-open-source/linee-guida-acquisizione-riuso-software-pa

However, at least as far as I know Windows, Office, et al are being used everywhere in public administration, and even e.g. public transport apps are proprietary. What gives?