The debate is flourishing in Denmark at the moment. The government is about to demand on its offices around the country that only open document formats is to be used. The advantages are clear: Public Documents will not be locked into one vendor or in a format that might become extinct over time, citizens can read documents from the public sector without having to buy a program from a single vendor… or are these advantages really present?
Before talking about standards it is important that I tell a little about the political climate in Denmark these days. There are a lot of political pressure from different sides in this case. Microsoft has its largest development department outside of the U.S. in Vedbæk, Denmark, which means that a lot of jobs is always taken into consideration. Denmark is a country that has come a long way in terms of digital government with public access to documents, social welfare accessibility and other tools in the democracy. A lot of work has already gone into developing standards for interfacing with the public sector in terms of XML schemas, known as the OIOXML standard. Furthermore the public sector is always under ever-more scrutiny to save money and thereby release the massive tax-pressure currently in Denmark (up to around 64%). A lot of pressure groups from various interest groups have also joined in on the debate, as has a large amount of bloggers. Therefore the talks are currently center of a heated debate involving jobs, future aspects, savings, morale and of course money and investments.
There are three standards for documents that might be considered: Open Document Format (ODF), Microsoft’s Office Open XML (OOXML) and Portable Document Format (PDF). The current proposal laid out by the government, after a group had looked into the problem, was to choose the following two formats for the public sector: ODF and OOXML. Well, in my opinion three standards should have been into consideration. Let’s take a look at the three standard one at a time:
PDF – This format, constructed and controlled by Adobe for a long time, is now becoming an ISO-certified standard and Adobe is releasing its control over the format to be able to compete with Microsoft’s newly launched PDF-competitor, XPS. Microsoft tried to get Adobe to agree that it should include PDF-support in its newest Office-series, but Adobe would not allow this. The result was that Microsoft came up with XPS, which is more or less a direct copy of PDF, but of course instead of being controlled by a standards body this format is solely controlled by Microsoft. PDF, however, is for some reason not part of the two formats the Danish Government is considering as the public standard currently so I will not look anymore into it at this point. It is important to notice that a large part of the public documents that are made available to citizens of Denmark are in PDF-format currently.
ODF – The open format proposed by the OASIS standards group and has become the first of the document formats in this war of formats to become ISO-certified with a revised version heading for the standards body already. The ODF format can be said to be the only true open format as it is the only format that is solely under complete standard body control. PDF and OOXML is heading this way to, but might not ever archive this status, so ODF is at time of writing the only true open document format. Werther ODF is the right choice depends on a lot of things, however. The debate is fueled by zealous protectors of their views. ODF is mostly supported by the open source community who has run tired of trying to reverse engineer Microsoft’s changing Office formats to support the de facto standards of Word, Excel and Powerpoint. This, however, is not a choice of werther the public sector should run Linux or OpenOffice.org, but what document format it should be forced to use. Some people in this debate seems to think that ODF equal OpenOffice.org, which is a complete mixup of things. This debate should not be a debate as to werther the public sector could switch from Microsoft Office to OpenOffice.org, or if OpenOffice.org has sufficient features and code maturity or software support to allow a switch of basic Word-users to OpenOffice.org. ODF is a format standard, nothing more. It could, however, be a good investment to start off a future choice to go for ODF, as the road to OpenOffice.org, which is being tested as an alternative to Microsoft’s Office in several parts of the public sector offices currently, would be easier. The choice of Linux seems to be further away, but a vendor-lock in to Microsoft’s Office suite would definitely prevent this. The ODF standard is currently a 600 page long standard, developed on the back of existing standards, such as MathML. It is still not the most advanced standard available, but has a level of features that should make it possible to use as a document standard in most public sector appliances. If the government made the choice that OpenOffice.org should be used/forced in the public sector perhaps the two choices of formats should instead be ODF and PDF, as both are supported directly by OpenOffice.org, but I, personally, recent choosing your format solely on the basis of the software/office-suite you are choosing to run currently. Documents are information that should be available at all times to every user, not to be degraded or outdated or especially not lost in a future change of underlying software. The ODF is pretty easy to implement and use and supplements the OIOXML standard pretty good, so it would be a natural choice. The problem arises when we bring the software suites of choice for the public sector into play. Microsoft’s Office suite is a monopoly in this scene currently in the Danish public sector and Microsoft has repeatedly refused to include support for a format they do not control themselves. This means that the public sector will have to rely on third-party plugins/converters for making their documents available in ODF. Such converters are freely available, but they complicate the process and Microsoft knows this perfectly well. In the long run people will always choose the easy solution. This means that should the government choose both ODF and OOXML, as they are currently proposing, they would in the end acknowledge that OOXML will be the de facto format, like Doc, Xls and the other binary formats from Microsoft has been in the past. It is not without consequences to make such a choice. The cost of switching entirely to ODF, without having OOXML as an allowed alternative, can be expensive at first, but yield a better cost-benefit over time as it opens up to cost-saving choices over time.
OOXML – Most of the discussion for or against the format has essentially been a discussion for or against Microsoft. This is missing the point. It is natural to take into consideration that Microsoft has had a dad history for misusing its monopoly to keep a tight control of its market and to squeeze out competitors, but this should primarily be a discussion on which format is the right one for the job. After taking a good look at the documentation for the OOXML standard two things became quite apparent for me right away: It is not the way you would design a new standard if one were to implement the smartest format. It is simply the closing thing to a binary dump into XML you will see in a format. The documentation is pretty good, but at times missing important parts that would make it impossible to implement without heading back to good, old reverse engineering of Microsoft’s older binary formats. The other thing that I quickly found in the documentation is that it appears to have been made in a hurry. Microsoft was a late comer in this race, only showing interest in “open” standards when ODF was getting interest from certain American states. Suddenly they wanted to offer an “open” alternative. Faster than ever before in the history of Microsoft’s long development archivements they came up with OOXML. Frankly it is nothing more than their latest format wrapped in XML – not innovative and not what you would expect from this market leader in an arena this important. However, Microsoft has a lot of friends in high places and the format apparently ran through ECMA in record time and is now speeding towards ISO certification. Microsoft has done well in this part of the battle. The hype surrounding OOXML is astounding reading over and over again that it is an open standard, when it is apparent to everyone that it still hasn’t archive this status. The name itself is part of the hype Office “Open” XML suggest an open standard. The problem with this hype and especially this debate is that the debate quickly ends up in a discussion on what an open standard is. Is it an open standard if it is almost sufficiently documented, but only one company can implement it, because only one company has implemented the full binary formats of Microsoft’s Office-suite, which is of course Microsoft. Is it a standard if one company controls it and decides its license? I have not problems with OOXML, personally, as long as Microsoft hands over the format completely to a standards body, such as OASIS or ISO. If this happens the format is fine by me – not how I would design a standard, but that’s another story. I guess they have already started on version 1.1 at this point and I guess that we should expect to see a big change if they really wants to make a competitive format. In terms of design ODF is by far the smartest design, compared to OOXML. The problem with politicians is that they do not understand the many issues in this debate. When Microsoft’s marketing department tells them that it is as open a standard as ODF they will believe it, not remembering Microsoft’s history of monopoly misuse. Why is this a problem? Because they miss the larger picture, which will cost in terms of vendor lock-in in the future… My suggestion is that if they choose OOXML they should also make demands on the format and control of it, instead of buying into a simple marketing hype.
Choosing two standards – It isn’t always easy to make a firm choice, especially when a lot of interest groups are involved – as a money in the terms of expenses. IT isn’t a popular area in politics. It is an area where huge savings can be found and investments can yield a good return, but also prove to be a terrible and extremely expensive failure. In Denmark we have had our share of IT projects gone wrong with everything from the IT system, Amanda, that went more than 600 million kroner over budget to failure of the implementation of public medical journals, that ended up in a lot of different systems, that didn’t work as individual systems or interoperated in any way. Neither of these projects contributed to a political climate for making large IT investment anymore in Denmark. We want to be a market leader in terms of IT, but not to make the investments at this point in time. The “safe” choice for the government is to play more than one horse. They have chosen to play ODF, as the only real open format and therefore be able to claim that their public sector is now open and based on accepted standards, but also to allow OOXML to keep the cost down and keep their big time friend, Microsoft, pleased. This will probably mean that Microsoft will end up being a de facto standard again – with a format that has not archived any real standardization. Microsoft has bedded their money right in OOXML. A lot of other countries are currently following the debate and decision in Denmark, as are a lot of interest groups and organisations. Denmark has become the first battle field in the war of formats. This war has not caught big political or public interest, only in certain parts of society. The IT knowledgeable are fighting each other in this war and so are the big companies, like Microsoft, IBM and Sun. For them this is much more than a mere fights of formats, because they know that formats is basis of control. IBM and Sun wants to relieve Microsoft of their control in the Office market and thereby free people of the Office products and on a longer perspective their addictiveness to the Windows platform. Microsoft, however, isn’t about to let a multi-billion revenue stream be reduced without a fight with every mean necessary. Denmark is caught in the middle being a big supporter of Microsoft, but also a spokescountry for democracy, choice and standards. The choice isn’t easy and the proposition made currently proposed by the government is an ill attempt to please all sides at the expense of future choice. It is a good chance to change what needs to changed so that a broader choice will be possible in the future and who knows when this chance will come again? The debate is heated at the moment and both sides tries to yell higher than the other instead of quietly stating their arguments. This is not a debate for or against Microsoft. This is a debate of open standards and choice…
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