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Title page 1

Contents 5

EXECUTIVE SUMMARY 2

1. FROM LEGACY TO LEADING: MODERNISING EU PUBLIC SERVICES THROUGH CLOUD TECHNOLOGY 8

2. CLOUD-FIRST: A UNIQUE OPPORTUNITY FOR PUBLIC SECTOR MODERNISATION IN THE EU 9

2.1. Cloud Adoption in Europe's Business Sector 11

2.2. Cloud Adoption in Public Services in the EU: Key Benefits of Cloud Solutions 11

2.3. Political Ambitions and Tensions in the EU 15

2.4. Cloud Use Cases in Public Services 18

2.5. Global Cloud Adoption Strategies to Modernise Public Services 29

3. OBSTACLES TO CLOUD ADOPTION IN EUROPE'S PUBLIC SECTOR 31

3.1. Preference for On-premises Systems and Applications 31

3.1.1. Concerns Regarding the Shifting Away from an On-premises System 31

3.1.2. Solutions to Address the Preference for On-Premises ICT Solutions in Government Agencies 32

3.2. Concerns about Digital Sovereignty and Vendor Lock in 33

3.2.1. What are the Concerns? 33

3.2.2. Are Sovereignty and Lock-in Concerns Merited? 34

3.3. Procurement Considerations 38

3.3.1. Bottom-up vs. Top-down Procurement Strategies 39

3.3.2. Procurement Models and Cloud Adoption in the Public Sector 39

4. POLITICAL LEADERSHIP AND FLEXIBILITY: THE CASE FOR MULTI-CLOUD ADOPTION IN EUROPE'S GOVERNMENTAL DIGITAL STRATEGY 42

4.1. Political Leadership and Multi-Cloud Solutions 43

4.2. The Rise of Multi-Cloud across Sensitive Public Services Use Cases 44

4.3. How Multi-Cloud and Sovereign Solutions Can Coexist 45

4.4. Tailoring Multi-Cloud Solutions to Public Sector Needs 47

5. HARNESSING CLOUD-BASED AI TO TRANSFORM GOVERNMENT SERVICES 48

5.1. The Cloud Imperative: Enabling AI in Public Services 49

5.2. The Critical Link between Cloud and AI Readiness 52

6. ESTIMATION OF THE ECONOMIC IMPACTS OF A CLOUD-FIRST STRATEGY FOR EUROPE'S PUBLIC SECTOR 55

7. CONCLUSIONS AND POLICY RECOMMENDATIONS 61

ANNEX I: Detailed Description of the Methodology Underlying the Estimation of Cost Savings and Productivity Gains from Enhanced Adoption of Cloud Solutions... 64

ANNEX II: Methodological Considerations Regarding the Interpretation and Robustness of Estimated Impacts 78

Tables 13

TABLE 1. KEY BENEFITS OF CLOUD SOLUTIONS FOR PUBLIC SERVICES USE CASES 13

TABLE 2. RECENT QUOTES FROM MAJOR EUROPEAN INSTITUTIONAL ACTORS ON THE NEED FOR EUROPEAN CLOUD SERVICES STANDARDS 16

TABLE 3. COUNTRY-SPECIFIC CLOUD POLICIES AND QUALITY CLOUD ECOSYSTEM IN EU COUNTRIES 22

TABLE 4. COUNTRY-SPECIFIC CLOUD POLICIES AND QUALITY CLOUD ECOSYSTEM IN NON-EU COUNTRIES 30

TABLE 5. MULTI-CLOUD ADOPTION STRATEGIES 47

TABLE 6. INSTANCES OF AI-CLOUD ADOPTION GLOBALLY 54

TABLE 7. OVERVIEW OF STEP-BY-STEP METHODOLOGY TO ESTIMATE THE ANNUAL FISCAL SAVINGS AND PRODUCTIVITY GAINS FROM A CLOUD-FIRST... 56

TABLE 8. ESTIMATED GOVERNMENT IT SPENDING IN TOTAL GOVERNMENT SPENDING (2022), EXCLUDING HUMAN RESOURCE SPENDING IN IT SPENDING 68

TABLE 9. ASSUMED CLOUD ADOPTION RATES 70

TABLE 10. INDEX VALUES USED FOR THE ADJUSTMENT OF NATIONAL CLOUD ADOPTION RATES 72

TABLE 11. ESTIMATED ANNUAL ECONOMIC GAINS FROM SAVINGS AND PRODUCTIVITY GROWTH FROM INCREASING ADOPTION OF CLOUD AND CLOUD-BASED... 77

Figures 27

FIGURE 1. "GOVERNMENT AS A PLATFORM" DIMENSION FROM THE 2023 OECD DIGITAL GOVERNMENT INDEX ON SHARE OF ENTERPRISES BUYING CLOUD... 27

FIGURE 2. NON-EU COUNTRIES AND CLOUD READINESS VIS A VIS AI READINESS 53

FIGURE 3. EU COUNTRIES AND CLOUD READINESS VIS A VIS AI READINESS 53

FIGURE 4. ESTIMATED ANNUAL SAVINGS AND PRODUCTIVITY GAINS FOR EU GOVERNMENTS AFTER 3 AND 6 YEARS OF IMPLEMENTATION IN EUR BILLION,... 58

FIGURE 5. ESTIMATED ANNUAL SAVINGS AND PRODUCTIVITY GAINS AFTER 3 AND 6 YEARS OF IMPLEMENTATION, IN PERCENT OF TOTAL ANNUAL EU... 59

Boxes 14

BOX 1. CLOUD DEPLOYMENT MODELS [ISO/IEC 22123-1] 14

BOX 2. SPECIFIC USE CASES IN CLOUD TECHNOLOGIES ACROSS EU PUBLIC SECTOR 19

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