The European Digital Resilience Index 2025: A New Barometer for Sovereignty

Date: September 4, 2025
Report Version: 1.0
EDRIX version: 1.0

Executive Summary

This report introduces the 2025 European Digital Resilience Index (EDRIX), a pioneering, data-driven assessment of digital sovereignty across the 27 European Union member states. Its creation is motivated by two fundamental and interconnected challenges.

The first is economic: a landmark 2025 report by the economic analysis firm Asterès quantifies Europe's dependency on US-based software and cloud services as a €264 billion annual economic drain. This massive outflow of capital, which supports nearly two million jobs in the US, has transformed the debate on digital sovereignty from a theoretical policy goal into a pressing economic imperative.

This severe economic vulnerability is dangerously amplified by the 2025 collapse of the old transatlantic alliance. The United States now wields its technological and trade dominance as a geopolitical weapon, directly challenging Europe's ability to enforce its own regulations. Exposed and enfeebled by decades of strategic inaction, Europe’s reliance on non-European digital infrastructure is no longer a mere economic leakage; it has become a critical strategic failure, cementing a path toward "digital vassalage."

The EDRIX was developed as a direct response to this challenge. Moving beyond traditional policy analysis (e.g. Digital Sovereignty in Europe – a first benchmark, WIK Consult, 2020, Open Source Software Country Intelligence, OSOR, 2024), it provides a holistic measure of a nation's ability to build, maintain, and control its own digital destiny. By synthesizing metrics on public policy, developer ecosystems, private and public sector digital resilience, and grassroots user adoption, the index offers the most comprehensive view of European digital resilience to date and constitutes a practical tool to guide the industrial policy now needed to build a sovereign "EuroStack."

The findings for 2025 reveal a new leader in digital resilience: Germany, which achieves the highest EDRIX score of 7.80. Its top rank is propelled by world-class Public Policy (normalized score: 10.00) and exceptional Grassroots Adoption (9.43), though its score is moderated by a comparatively weaker Developer Ecosystem (3.51).

The index highlights that there is no single path to digital resilience. The top-ranking member states achieve their positions through remarkably different strategies:

1. The Leading Pack: Diverse Paths to Success: The top of the ranking is not a homogeneous bloc but a collection of nations with distinct strengths.

   • Policy and Adoption Leaders: Germany (7.80) and Sweden (6.80) achieve top scores through a combination of excellent Public Policy and a strong developer base or user adoption.
   • Implementation Champions: The Czech Republic (6.89) rises to second place through outstanding real-world implementation, leading the EU in both Private Sector (10.00) and Public Sector Digital Resilience (10.00), despite having more moderate policy and ecosystem scores.
   • Ecosystem Powerhouses: Estonia (6.65) leverages its world-class Developer Ecosystem (10.00) to secure a top-five position. The Netherlands (6.24) similarly boasts a leading ecosystem (9.55) but is held back by weaker digital resilience scores across its sectors.

2. The Specialized Contenders: This diverse middle group contains nations that demonstrate leadership in specific areas, indicating significant focused potential. Finland, for example, is the undisputed leader in Grassroots Adoption (10.00), showing a strong public appetite for sovereign technologies. Luxembourg also stands out, showcasing a top-tier Developer Ecosystem (9.48).

3. The Nations with Untapped Potential: The countries in the lower third of the ranking often possess "pockets of excellence" that can lead to future growth. Ireland, despite a low overall rank, has a top-five Developer Ecosystem (7.24). This disconnect between talent and implementation suggests that with targeted policy, these nations can rapidly improve their digital resilience by building on their strong human capital.

This report will detail the methodology behind the EDRIX, provide a thorough analysis of the 2025 results, and explore the diverse pathways member states are taking toward a resilient and autonomous digital future for Europe.

Methodology: A Data-Driven, Multi-Pillar Framework

The motivation for the 2025 European Digital Resilience Index (EDRIX) stems from the need to measure not just strategic intent, but tangible, real-world digital outcomes. True sovereignty is not merely a reflection of government policy, but the sum of a nation's entire capacity—from its developers and businesses to its public institutions and citizens—to create, deploy, and utilize technology independently. To capture this holistic view, the EDRIX integrates five distinct data pillars into a comprehensive composite framework.

We introduce two primary indices:

1. The European Digital Resilience Index (EDRIX): A comprehensive score that measures a nation's overall digital strategic autonomy.
2. The European Open Technology Readiness Index (EOTRIX): A more focused score that specifically measures a nation's adoption and readiness for open technologies, a key enabler of resilience.

The Five Pillars of the Index

Each pillar represents a critical dimension of digital resilience. By synthesizing these five pillars, the EDRIX moves beyond theory to provide a robust, evidence-based ranking of national digital performance.

1. Public Policy: This pillar uses the 2024 Open Source Observatory (OSOR) report from the European Commission to grade the maturity of each member state's public sector Open Source strategies. It assesses the presence of legal frameworks, dedicated governance bodies (like OSPOs), and proactive initiatives, providing a measure of top-down strategic commitment. As the 2025 results show, some nations (e.g. Germany, Sweden, and France) have world-class policies on paper, but this does not always translate into leadership in other pillars, highlighting a potential gap between policy and real-world implementation (cf. for instance A Negative Assessment of German Digital Policy: Between Increased Dependence and Loss of Credibility, ESDP, 2025 and Politique numérique de l’État : le CNLL dénonce une stratégie d’exclusion des entreprises françaises du logiciel libre, CNLL, 2025).

2. Developer Ecosystem: Digital resilience requires the capacity to build and maintain technology, not just consume it. This pillar measures the strength of a nation's domestic talent pool through two metrics:

   • The density of its developer community, using per-capita data on GitHub developers.
   • The number of vetted sovereign solutions in the EuroStack Directory Project. (Used in EDRIX only).

3. Grassroots Adoption: This pillar measures the on-the-ground digital choices of citizens and businesses. It synthesizes market share data for open and sovereign technologies, including:

   • Linux Desktop Share: While relatively low overall (3.70% on average for the EU27, but growing steadily), it gives a very good proxy for Open Source adoption by individuals and business, and is relatively easy measure (cf. Statcounter and Cloudflare open dataset).
   • Sovereign Browser Share: The combined share of Open Source desktop browsers (currently, only Firefox, Brave have significant usage in Europe) and Opera, a European-led browser. This measures the public's (individual and businesses) preference for alternatives to dominant US-based browsers. (Used in EDRIX only). This is also relatively easy to measure (same sources as above).
   • Open Source Browser Share: The market share of Firefox and Brave alone. (Used in EOTRIX only).

4. Private Sector Digital Resilience: This pillar provides a proxy for the digital sovereignty of a nation's private sector as a technology consumer. It is composed of:

   • A sovereignty rating (web, mail, DNS) of high-traffic domains with national TLDs, excluding obviously US-owned properties, assessing their reliance on non-EU technology providers.
   • The per-capita number of supporters for the EuroStack project, as reported by the EuroStack Industry Initiative.

5. Public Sector Digital Resilience: This pillar measures the technological sovereignty of the state itself by rating the core digital infrastructure (web, mail, DNS) of its main public institutions, such as the head of state, government, and capital city.
   Of course. The new results paint a significantly different and more nuanced picture of European digital resilience. The previous narrative of a simple "Vanguards vs. Powerhouses" is no longer accurate. The updated analysis below reflects the new reality, using the precise figures you've provided to highlight the diverse and sometimes surprising strategies that define the top performers.

The European Digital Resilience Index (S1 2025) Results & Analysis

The 2025 rankings reveal that there is no single formula for digital resilience. The top of the leaderboard is not a monolithic bloc but a collection of nations that have achieved success through remarkably different, and sometimes highly specialized, strategies.

Tier 1: The Leadership Tier – A Mosaic of Strengths

The top of the 2025 rankings is not a homogeneous group but a diverse collection of leaders, each excelling through a unique strategic focus.

Germany (EDRIX 7.80) claims the top spot, demonstrating a powerful combination of world-class Public Policy (normalized score: 10.00) and exceptionally strong Grassroots Adoption (9.43). However, this policy leadership is not perfectly mirrored in its Developer Ecosystem (3.51), revealing a gap between strategic intent and the domestic talent pipeline.

This theme of diverse pathways is central to the leadership tier. The Czech Republic (EDRIX 6.89) secures the second position not through policy, but through outstanding real-world implementation, achieving perfect 10.00 scores in both Private Sector and Public Sector Digital Resilience. In stark contrast, Estonia (EDRIX 6.65) leverages its world-class Developer Ecosystem (10.00) to achieve a top-five rank. Meanwhile, Finland (EDRIX 6.66) emerges as the undisputed champion of Grassroots Adoption (10.00), proving that a highly engaged public can be a formidable asset for digital resilience. Nations like Sweden (6.80) and France (6.64) showcase a more balanced, albeit policy-led, approach.

Tier 2: The Specialized Contenders – Pockets of Excellence

This large middle group highlights nations that have cultivated world-class capabilities in specific areas, even if their overall score is more moderate. The Netherlands (EDRIX 6.24) is a prime example, boasting a top-tier Developer Ecosystem (9.55) that rivals the leaders, but is held back by lower scores in private and public sector digital resilience.

Similarly, Luxembourg (EDRIX 5.65) confirms its status as a powerhouse for talent and sovereign solutions, with the second-highest score in the Developer Ecosystem pillar (9.48). Austria (EDRIX 5.97) distinguishes itself with elite scores in both Private Sector (8.29) and Public Sector Digital Resilience (8.62), demonstrating a strong capacity for sovereign infrastructure deployment. These nations show that focused investment can create significant national advantages.

Tier 3: The Nations with Untapped Potential – The Implementation Gap

The countries in the lower third of the ranking often possess surprising strengths that represent clear opportunities for growth. The most striking example is Ireland (EDRIX 3.10). Despite its low overall rank and a zero score in Public Policy, it achieves a top-five performance in the Developer Ecosystem pillar (7.24). This reveals a significant disconnect between a vibrant, highly skilled digital workforce and the policy and market frameworks needed to translate that potential into tangible resilience.

A different kind of gap is visible in Malta (EDRIX 2.76). It has a strong Public Policy score (7.50) and a solid developer base, but this is completely undermined by zero scores across all three implementation-focused pillars: Grassroots Adoption, Private Sector, and Public Sector Digital Resilience. For these nations, the challenge is clear: bridging the gap between potential—whether in human capital or policy—and on-the-ground impact is the key to unlocking a more resilient digital future.

Annex I: Detailed Index Calculation

To ensure fairness and clarity, both the EDRIX and EOTRIX are calculated using a structured, three-step methodology.

Step 1: Raw Pillar Score Aggregation

First, a "raw" score is calculated for each of the five pillars. For pillars composed of multiple metrics, a weighted average is computed to emphasize the importance of certain data points. For instance, within the Developer Ecosystem pillar, we give extra weight to the density of GitHub developers, because a strong, active talent pool is a more fundamental indicator of a nation's long-term capacity to innovate than the current number of catalogued solutions. Similarly, for the Private Sector Digital Resilience pillar, extra weight is given to the domain sovereignty ratings, as this reflects the tangible, real-world technology choices of businesses—a stronger measure of resilience than declared support for related initiatives. This step consolidates the underlying metrics into a single, meaningful value for each pillar before comparison between countries.

Step 2: Pillar Score Normalization

The raw pillar scores from Step 1 exist on different scales. To compare them fairly, each pillar's set of scores is normalized across all 27 member states to a common scale of 0 to 10.

In this min-max normalization, the country with the lowest raw score for a given pillar receives a normalized score of 0, and the country with the highest raw score receives a 10. All other countries are scored proportionally in between. This critical step ensures that each pillar has an equal potential impact on the final index, preventing any single pillar with a wider data range from disproportionately influencing the results.

Step 3: Final Index Composition

The final index is calculated as the simple average of the normalized pillar scores from Step 2.

• The EDRIX is the average of its five normalized pillar scores (Public Policy, Developer Ecosystem, Grassroots Adoption, Private Sector Resilience, and Public Sector Resilience).
• The EOTRIX is the average of its three specific normalized pillar scores (Public Policy, Developer Ecosystem, and Grassroots Adoption), using only the open-technology-focused metrics as described above.

Annex II: Per Country Report Cards

Austria

EDRIX Score: 5.97
EOTRIX Score: 4.38
Tier: Specialized Contender

Overall Assessment

Austria is a mid-tier performer whose relatively healthy grassroots adoption and digital infrastructure are undermined by a lack of a strong, coherent national policy on digital sovereignty and open source.

2020 Baseline

In 2020, Austria was an "emerging" player with a solid strategic and security agenda but less-developed open-source software policies.

2024 Progression

Austria has taken steps to embrace OSS, with the 2022 establishment of an open source working group and the 2023 Digital Austria Act. A key move is the collaboration with Germany on the OpenDesk initiative.

2025 Data-Driven Analysis

The data reveals a significant downgrade from its 2020 qualitative assessment. Austria's Public Policy score is very low (2.50). Its strengths lie in Grassroots Adoption (6.46), supported by a high Open Source Browser Share (19.15%), and healthy public/private sector domains. The lack of a strong government strategy is its primary weakness.

Strengths

• Grassroots Adoption: A high rate of adoption for open source and sovereign browsers.
• Public/Private Sector Resilience: The national digital infrastructure shows a good level of sovereignty.

Weaknesses

• Public Policy: A very low score indicates a lack of a mature, cohesive, and binding national strategy for digital sovereignty.

Outlook

Austria is currently punching below its weight. It has the societal buy-in and a solid infrastructure base to be more resilient, but this potential is unrealized due to a weak policy framework. Formalizing its strategy and giving more power to its open source working group could significantly improve its standing.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 3.97 / 10
Grassroots Adoption: 6.46 / 10
Private Sector Resilience: 8.29 / 10
Public Sector Resilience: 8.62 / 10

EOTRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 3.91 / 10
Grassroots Adoption: 6.73 / 10

Belgium

EDRIX Score: 3.87
EOTRIX Score: 4.11
Tier: Untapped Potential

Overall Assessment

Belgium is a lower-tier performer in digital resilience. Its decentralized, practical approach has not translated into strong performance in the key data pillars, revealing a lack of a cohesive national strategy and no standout strengths in adoption or development.

Sobering Reality

The nation's key public institutions exemplify this dependency. The email services for the Royal Palace and the Prime Minister's office are run by Microsoft, while the Prime Minister's website DNS is managed by US-based Akamai. This reliance contributes to very low scores in Private Sector Digital Resilience (3.04) and Public Sector Digital Resilience (3.98).

2020 Baseline

In 2020, Belgium was an "emerging" nation with strong institutions but lacking a high-level, unified strategic vision. Its approach was practical and driven by a healthy bottom-up ecosystem.

2024 Progression

Belgium's progress remains a result of collaboration between its various government levels. The federal public service body, FPS BOSA, actively contributes to open source projects, and strategic players like iMio are crucial in providing solutions to local governments.

2025 Data-Driven Analysis

The data reflects the lack of a strong central policy, with a low Public Policy score (3.75). It has no standout strengths, with below-average scores in its Developer Ecosystem (3.93), Grassroots Adoption (4.64), and Public/Private Sector Resilience.

Strengths

• Local Implementation: A proven model of adoption at the municipal level, driven by associative bodies.

Weaknesses

• Public Policy: The lack of a unified, federal strategy holds back its overall performance.
• No Standout Features: It does not excel in any of the five pillars of resilience.

Outlook

Belgium's path to greater resilience may require a more coordinated federal strategy that unites its fragmented efforts. By leveraging the successful model of iMio at a national level and providing a stronger central policy framework, it could significantly improve its performance.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 3.75 / 10
Developers and Ecosystem: 3.93 / 10
Grassroots Adoption: 4.64 / 10
Private Sector Resilience: 3.04 / 10
Public Sector Resilience: 3.98 / 10

EOTRIX Pillar Scores

Public Policies: 3.75 / 10
Developers and Ecosystem: 3.89 / 10
Grassroots Adoption: 4.69 / 10

Bulgaria

EDRIX Score: 4.67
EOTRIX Score: 3.72
Tier: Untapped Potential

Overall Assessment

Bulgaria is in the early stages of building its digital resilience. It has a foundational policy in place but currently shows a balanced but low-scoring profile across all pillars, indicating it has significant room for growth.

Sobering Reality

The email services for the Council of Ministers are managed by Microsoft, while the email for the city of Sofia is run by Google. This contributes to a moderate Public Sector Digital Resilience score (6.29) but highlights a critical vulnerability at the heart of its public administration.

2020 Baseline

In 2020, Bulgaria was a "laggard," focused on establishing basic digital security. It had a foundational legal framework for open source that was yet to be fully implemented.

2024 Progression

Bulgaria is consolidating its approach around its 2016 eGovernment Act, which mandates OSS for new government software. The creation of the Ministry of e-Governance in 2021 provides a more focused policy driver, and a partnership with the Budibase project showed its capacity for practical crisis response.

2025 Data-Driven Analysis

The data confirms its status as an emerging country. Bulgaria has a weak Public Policy score (3.75) and a small Developer Ecosystem (2.92). Its scores for Grassroots Adoption and Public/Private Sector resilience are also in the lower half of the EU rankings.

Strengths

• Legal Foundation: The eGovernment Act provides a clear legal mandate for open source in the public sector.

Weaknesses

• Public Policy: The strategy lacks the maturity and institutional backing of higher-ranked nations.
• Developer Ecosystem: A small developer community limits its capacity to build and maintain sovereign solutions.

Outlook

Bulgaria is at the beginning of its journey. The key to its progress will be the effective enforcement and implementation of its existing legal framework. This will require investment in building institutional capacity and fostering a domestic developer community to support its goals.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 3.75 / 10
Developers and Ecosystem: 2.92 / 10
Grassroots Adoption: 4.58 / 10
Private Sector Resilience: 5.81 / 10
Public Sector Resilience: 6.29 / 10

EOTRIX Pillar Scores

Public Policies: 3.75 / 10
Developers and Ecosystem: 2.98 / 10
Grassroots Adoption: 4.42 / 10

Croatia

EDRIX Score: 3.48
EOTRIX Score: 3.56
Tier: Untapped Potential

Overall Assessment

Croatia is a lower-tier performer in digital resilience, with underdeveloped frameworks across the board. It lacks a strong national policy, a significant developer community, and shows no evidence of producing sovereign software solutions.

2020 Baseline

In 2020, Croatia was a "laggard," with underdeveloped frameworks for both strategic autonomy and open source policy and a very narrow focus on cybersecurity.

2024 Progression

The use of OSS has increased in specific areas like open data portals. The "Digital Croatia Strategy until 2032" sets the digitalization of public administration as a priority and includes the creation of an open source platform.

2025 Data-Driven Analysis

The data confirms its laggard status. Croatia has a weak Public Policy score (2.50) and a small Developer Ecosystem (2.04). Notably, it has a raw score of zero for EuroStack Solutions, indicating a lack of recognized sovereign software. Its Grassroots Adoption (5.89) is its strongest, albeit still average, pillar.

Strengths

• Grassroots Adoption: Moderate adoption of open source and sovereign browsers.

Weaknesses

• Developer Ecosystem: A small developer base with no visible output of sovereign software solutions.
• Public Policy: An immature policy framework that is still in the strategic planning phase.

Outlook

Croatia has a long road ahead. The Digital Croatia Strategy provides a target, but the country faces the foundational challenge of building a domestic developer ecosystem from a very low base. Without the capacity to build and maintain its own technology, its sovereignty goals will be difficult to achieve.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 2.04 / 10
Grassroots Adoption: 5.89 / 10
Private Sector Resilience: 2.75 / 10
Public Sector Resilience: 4.21 / 10

EOTRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 2.31 / 10
Grassroots Adoption: 5.88 / 10

Cyprus

EDRIX Score: 3.04
EOTRIX Score: 2.59
Tier: Untapped Potential

Overall Assessment

Cyprus is in the initial stages of its digital sovereignty journey. While recent policy developments mark a significant step forward from its 2020 baseline, it currently ranks near the bottom of the EU across all data-driven pillars of resilience.

Sobering Reality

The official website for the Government of Cyprus is hosted in the US, and the email for the city of Nicosia is run by Microsoft. These dependencies contribute to a moderate Public Sector Digital Resilience score of 4.22 and highlight significant vulnerabilities.

2020 Baseline

In 2020, Cyprus was a "laggard" at the bottom of the index, with minimal digitalization and no formal government policies for digital sovereignty or open source.

2024 Progression

Cyprus has matured significantly. The Deputy Ministry of Research, Innovation and Digital Policy (DMRID) now leads digital policy, and the 2022 National Policy for Open Science Practices encourages the release of OSS from public research.

2025 Data-Driven Analysis

The data reflects its nascent stage. Cyprus scores 0.00 for Public Policy, as its new policies have not yet reached the maturity level measured by the OSOR report. It has low scores across all other pillars, including its Developer Ecosystem (4.56) and Grassroots Adoption (3.21).

Strengths

• New Policy Direction: The 2022 National Policy provides a foundational strategic document for the first time.

Weaknesses

• Public Policy: A score of zero reflects its immature policy landscape.
• Low Performance Across All Pillars: Cyprus is in the bottom third of the EU for every pillar of resilience.

Outlook

Cyprus has the longest road ahead of any EU member state, but it has taken the crucial first step by establishing a national policy. Its progress will depend on sustained political will to translate this new strategy into tangible investments in skills, infrastructure, and institutional capacity.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 0.00 / 10
Developers and Ecosystem: 4.56 / 10
Grassroots Adoption: 3.21 / 10
Private Sector Resilience: 3.23 / 10
Public Sector Resilience: 4.22 / 10

EOTRIX Pillar Scores

Public Policies: 0.00 / 10
Developers and Ecosystem: 4.48 / 10
Grassroots Adoption: 3.28 / 10

Czech Republic

EDRIX Score: 6.89
EOTRIX Score: 4.75
Tier: Leader

Overall Assessment

The Czech Republic has emerged as a leader in overall digital resilience, not through a focus on open source, but by cultivating one of the most sovereign public and private digital infrastructures in the EU. Its strength lies in the technological choices made by its institutions and companies, while its open source policy and ecosystem remain less developed.

Sobering Reality

Despite its overall infrastructure strength, the website for the President of the Czech Republic is hosted in the US and its DNS is managed by Cloudflare. Its government email is also run by Microsoft.

2020 Baseline

In 2020, the Czech Republic was an "emerging" country with established legal foundations for both strategic and open source fronts but had yet to translate them into proactive, high-impact national initiatives.

2024 Progression

A major structural change is the establishment of the Digital and Information Agency (DIA) in 2023, which centralizes digital governance. The "Brno Declaration" by key associations is paving the way for a national OSPO, indicating a move towards a more coordinated open source strategy.

2025 Data-Driven Analysis

The country's high EDRIX score (6.89) is powered by perfect scores in Private Sector (10.00) and Public Sector (10.00) digital health, confirmed by its #1 rank in the raw metric for national domain sovereignty. This highlights a general resilience. However, its much lower EOTRIX score (4.75) reflects a weaker focus on open technology, with a modest Public Policy score (6.25) and a small Developer Ecosystem (2.83).

Strengths

• Public/Private Sector Resilience: Top-ranked in the EU for the sovereignty of its digital infrastructure, indicating a low reliance on non-EU technology providers for core web, mail, and DNS services.

Weaknesses

• Open Source Policy: The national strategy for open source is not as mature as that of the top-tier countries.
• Developer Ecosystem: The country has a relatively small per-capita open source developer community.

Outlook

The Czech Republic has built a resilient foundation. Its future progress depends on better integrating open source principles into its existing strategy. The establishment of the DIA and the push for a national OSPO are positive signs that could bridge the gap between its general digital health and its open technology readiness.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 6.25 / 10
Developers and Ecosystem: 2.83 / 10
Grassroots Adoption: 5.39 / 10
Private Sector Resilience: 10.00 / 10
Public Sector Resilience: 10.00 / 10

EOTRIX Pillar Scores

Public Policies: 6.25 / 10
Developers and Ecosystem: 2.95 / 10
Grassroots Adoption: 5.06 / 10

Denmark

EDRIX Score: 5.08
EOTRIX Score: 5.85
Tier: Specialized Contender

Overall Assessment

Denmark's ranking is lower than its reputation would suggest, presenting a puzzle. While it has a strong policy framework and a healthy developer ecosystem, this is not reflected in the technological choices of its citizens or the sovereignty of its core digital infrastructure.

Sobering Reality

The official website for the Danish Monarch is hosted in the US, with DNS provided by Microsoft Azure. The website for the capital, Copenhagen, is hosted on Microsoft infrastructure, and its email is run by Amazon. These dependencies severely impact its Public Sector Digital Resilience score (4.60).

2020 Baseline

In 2020, Denmark was a "leader," demonstrating a proactive and sophisticated strategic agenda for digital sovereignty supported by a mature and well-governed open source policy framework.

2024 Progression

Denmark's progress continues to be driven by local authorities and associations like OS2. The Danish Agency for Digital Government has created key guidelines for the use of OSS, but the national push has been less forceful than in other leading countries.

2025 Data-Driven Analysis

Denmark's data reveals a contradiction. Its Public Policy (7.50) and Developer Ecosystem (7.27) scores are strong. However, it scores very poorly on Grassroots Adoption (2.37) and has low ratings for its public and private sector domains, which significantly pulls down its overall EDRIX score.

Strengths

• Public Policy: A mature policy framework, particularly at the local and agency level.
• Developer Ecosystem: A high density of open source developers.

Weaknesses

• Grassroots Adoption: Very low market share for open source and sovereign technologies.
• Public/Private Sector Resilience: Low sovereignty ratings for its core national internet infrastructure.

Outlook

Denmark needs to investigate the disconnect between its capabilities and its outcomes. The data suggests that despite having a pro-OSS policy and a skilled workforce, both its government and its citizens are still heavily reliant on non-sovereign technologies. Understanding and addressing this gap is key to its future resilience.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 7.50 / 10
Developers and Ecosystem: 7.27 / 10
Grassroots Adoption: 2.37 / 10
Private Sector Resilience: 3.65 / 10
Public Sector Resilience: 4.60 / 10

EOTRIX Pillar Scores

Public Policies: 7.50 / 10
Developers and Ecosystem: 7.59 / 10
Grassroots Adoption: 2.47 / 10

Estonia

EDRIX Score: 6.65
EOTRIX Score: 6.47
Tier: Leader

Overall Assessment

Estonia's digital sovereignty is defined by its outstanding developer ecosystem, which gives it a significant domestic capacity to build and maintain its own technology. This technical strength is the core of its resilience, supported by an increasingly formalized pro-open source public policy.

Sobering Reality

Despite its reputation, the official websites for the city of Tallinn, the President, and the Government are all hosted in the United States, a significant dependency for a nation that champions digital sovereignty. This limits its Public Sector Digital Resilience score to a moderate 6.66.

2020 Baseline

In 2020, Estonia was a "contender" and a world leader in practical, top-down e-government, with its entire state architecture serving as a testament to open principles.

2024 Progression

Estonia has formalized its commitment to OSS. A 2021 digitalization plan introduced the principle that all taxpayer-funded software should be released under an open source licence. It is also developing "Koodivaramu," its national open source code repository.

2025 Data-Driven Analysis

Estonia's high ranking is driven by a perfect 10.00 score in the Developer Ecosystem pillar. This is supported by its #2 rank for per-capita GitHub developers and a very high #2 rank for vetted EuroStack Solutions, proving its capacity to produce sovereign technology. Its Public Policy score (6.25) and Grassroots Adoption (4.13) are moderate.

Strengths

• Developer Ecosystem: A very high density of developers and a proven ability to create sovereign software solutions for the public and private sectors.
• Public Policy: A clear and increasingly robust policy commitment to "open by default" for government software.

Weaknesses

• Grassroots Adoption: The general population's adoption of open source alternatives is not as strong as its developer community's output.

Outlook

Estonia's model of "build it yourself" is a powerful form of digital resilience. The challenge will be to ensure its advanced public sector solutions and developer output translate into wider adoption across its private sector and citizen base to create a fully resilient digital society.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 6.25 / 10
Developers and Ecosystem: 10.00 / 10
Grassroots Adoption: 4.13 / 10
Private Sector Resilience: 6.23 / 10
Public Sector Resilience: 6.66 / 10

EOTRIX Pillar Scores

Public Policies: 6.25 / 10
Developers and Ecosystem: 9.09 / 10
Grassroots Adoption: 4.06 / 10

Finland

EDRIX Score: 6.66
EOTRIX Score: 7.94
Tier: Leader

Overall Assessment

Finland is the EU's leader in open technology readiness, demonstrating a powerful model of resilience built from the ground up. Its strength is driven by exceptional citizen adoption of open source and a vibrant developer community, which compensates for a less forceful central government policy.

Sobering Reality

The official website for the President of Finland is hosted in the United States, a notable dependency that limits its Public Sector Digital Resilience score to a moderate 5.42.

2020 Baseline

In 2020, Finland was an "emerging" country with a significant disconnect between its strong top-down security strategy and its weak formal policy for open source.

2024 Progression

Finland continues to champion open source, with policymaking remaining decentralized. The 2019 government program prioritized openness and OSS use in procurement. Strategic players like the Centre for Open Systems and Solutions (COSS) remain central to the ecosystem's health.

2025 Data-Driven Analysis

Finland's #1 EOTRIX score (7.94) is the result of a perfect Grassroots Adoption score (10.00), driven by the EU's highest Linux Desktop Share (7.03%). This is complemented by a strong Developer Ecosystem (7.15). The data confirms the qualitative assessment: its Public Policy score (6.25) is solid but not top-tier, showing its success is societal rather than state-mandated.

Strengths

• Grassroots Adoption: The highest level of citizen and business adoption of open source technologies in the EU.
• Developer Ecosystem: A high density of developers and strong community organizations.

Weaknesses

• Public Policy: Lacks a single, powerful central government body or a comprehensive, binding national strategy for open source, relying more on decentralized initiatives.

Outlook

Finland provides a compelling model for bottom-up digital resilience. While it could benefit from more coordinated government support to formalize its strengths, its tech-savvy population and strong developer base give it a sustainable foundation for continued leadership in open technology.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 6.25 / 10
Developers and Ecosystem: 7.15 / 10
Grassroots Adoption: 10.00 / 10
Private Sector Resilience: 4.47 / 10
Public Sector Resilience: 5.42 / 10

EOTRIX Pillar Scores

Public Policies: 6.25 / 10
Developers and Ecosystem: 7.56 / 10
Grassroots Adoption: 10.00 / 10

France

EDRIX Score: 6.64
EOTRIX Score: 6.29
Tier: Leader

Overall Assessment

France remains a major strategic force in European digital sovereignty, leveraging a strong, state-led public policy and a robust public sector to drive its agenda. However, its top-down approach has not yet fully translated into a leading per-capita developer ecosystem or widespread grassroots adoption.

Sobering Reality

The official website for the President of the French Republic is hosted in the United States, a significant vulnerability for a nation that champions strategic autonomy. This contributes to a respectable, but not top-tier, Public Sector Digital Resilience score of 7.17.

2020 Baseline

In 2020, France was a "leader," characterized by an ambitious, proactive, and explicitly geopolitical agenda, backed by an extensive legal and institutional framework for open source software.

2024 Progression

France has deepened its high-level commitment. The government's Open Source Software and Digital Commons Action Plan (2021) and the creation of the Free Software Council in 2022 institutionalize its strategy. It also championed the "European Initiative for Digital Commons" during its 2022 EU presidency.

2025 Data-Driven Analysis

France's performance is led by a perfect Public Policy score (10.00), which translates into strong scores for Public Sector (7.17) and Private Sector (6.86) resilience. Its overall rank is moderated by an average per-capita Developer Ecosystem (4.08) and moderate Grassroots Adoption (5.09).

Strengths

• Public Policy: A comprehensive, state-driven strategy with dedicated institutions and a clear geopolitical vision.
• Public Sector Resilience: French public institutions show a relatively high degree of technological sovereignty.

Weaknesses

• Developer Ecosystem: While large in absolute terms, the per-capita density of its developer community is not at the top tier.
• Grassroots Adoption: Citizen and business uptake of open source alternatives remains average.

Outlook

France's state-led model provides strong strategic direction. Its main challenge, as highlighted by domestic critics, is to avoid a disconnect between central policy and the broader ecosystem. Future success will depend on its ability to foster a more vibrant, bottom-up developer community and encourage wider societal adoption.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 10.00 / 10
Developers and Ecosystem: 4.08 / 10
Grassroots Adoption: 5.09 / 10
Private Sector Resilience: 6.86 / 10
Public Sector Resilience: 7.17 / 10

EOTRIX Pillar Scores

Public Policies: 10.00 / 10
Developers and Ecosystem: 3.51 / 10
Grassroots Adoption: 5.35 / 10

Germany

EDRIX Score: 7.80
EOTRIX Score: 7.71
Tier: Leader

Overall Assessment

Germany stands as the EU's primary engine for digital sovereignty, leveraging its comprehensive public policy and strong grassroots adoption of alternative technologies. However, its leadership is tempered by a comparatively modest per-capita developer ecosystem, indicating a potential gap between its strategic ambitions and the cultivation of a sufficiently large domestic talent pool to realize them.

Sobering Reality

The DNS for the capital city, Berlin, is managed by Amazon Web Services, a significant dependency for the EU's leading nation. This is the main factor preventing its Public Sector Digital Resilience score (8.13) from being perfect.

2020 Baseline

In 2020, Germany was a "leader," driving the European digital sovereignty agenda with its industrial and political weight. Its approach was broad, proactive, and deeply institutionalized, supported by a mature, government-backed ecosystem for open source software.

2024 Progression

By 2024, Germany has significantly accelerated its federal open source policy. The government's "Digital Strategy for 2025" focuses on achieving digital sovereignty through the systematic use of open source. The establishment of the Centre for Digital Sovereignty (ZenDiS) in 2022 is a landmark development, steering major projects like the "Sovereign Workplace" and the federal code repository Open CoDE.

2025 Data-Driven Analysis

Germany's top EDRIX ranking (7.80) is built on a perfect Public Policy score (10.00) and a high Grassroots Adoption score (9.43). This is supported by raw metrics showing the highest Open Source Browser Share (21.75%) and third-highest Linux Desktop Share (5.76%) in the EU. Its main weakness is the Developer Ecosystem score (3.51), which, while based on a large absolute number of developers, is not a per-capita leader.

Strengths

• Public Policy: A perfect score reflects a mature, well-funded, and institutionalized strategy with bodies like ZenDiS.
• Grassroots Adoption: High market share for open source browsers and Linux indicates strong citizen and business buy-in.
• Public/Private Sector Resilience: Strong scores (8.13 and 7.95) show that its national digital infrastructure is relatively sovereign.

Weaknesses

• Developer Ecosystem: The per-capita density of GitHub developers and sovereign solutions is average, not reflecting its status as an economic leader.

Outlook

Germany's trajectory is set by its strong political will and institutional capacity. The primary challenge will be to scale its developer ecosystem to match its policy ambitions and reduce its long-term reliance on external talent and solutions for implementation. Success will depend on translating its strategic vision into effective skills and education programs.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 10.00 / 10
Developers and Ecosystem: 3.51 / 10
Grassroots Adoption: 9.43 / 10
Private Sector Resilience: 7.95 / 10
Public Sector Resilience: 8.13 / 10

EOTRIX Pillar Scores

Public Policies: 10.00 / 10
Developers and Ecosystem: 3.46 / 10
Grassroots Adoption: 9.66 / 10

Greece

EDRIX Score: 3.77
EOTRIX Score: 3.25
Tier: Untapped Potential

Overall Assessment

Greece remains in the lower tier of digital resilience, held back by a combination of weak public policy, a small developer ecosystem, and digital infrastructure that is still developing its sovereignty.

Sobering Reality

The website for the capital, Athens, is hosted in the US. The website for the Prime Minister relies on both Akamai and Cloudflare, two major US providers, for its web and DNS services. These dependencies limit its Public Sector Digital Resilience score to a moderate 5.18.

2020 Baseline

In 2020, Greece was a "laggard," hampered by low digitalization. It had a nascent capacity for OSS through an e-governance law and a partnership with its national OSS foundation.

2024 Progression

OSS promotion has grown, driven by the Ministry of Digital Governance's "Bible of Digital Transformation 2020-2025." The Open Technologies Alliance (GFOSS) remains a key strategic player, and a new agreement with the University of Athens aims to boost OSS education.

2025 Data-Driven Analysis

The data confirms Greece's position in the lower ranks. It has a weak Public Policy score (3.75) and a very small Developer Ecosystem (0.65). Its Grassroots Adoption (5.01) and infrastructure resilience scores are also below the EU average.

Strengths

• Strategic Roadmap: The "Bible of Digital Transformation" provides a clear policy document to guide future efforts.

Weaknesses

• Developer Ecosystem: One of the smallest per-capita developer communities in the EU.
• Public Policy: The policy framework is still in its early stages and lacks mature institutional backing.

Outlook

Greece has a clear roadmap but faces a significant capacity-building challenge. Success will depend on sustained political will and significant investment in developing its domestic tech talent pool and upgrading its public digital infrastructure according to the principles of sovereignty.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 3.75 / 10
Developers and Ecosystem: 0.65 / 10
Grassroots Adoption: 5.01 / 10
Private Sector Resilience: 4.24 / 10
Public Sector Resilience: 5.18 / 10

EOTRIX Pillar Scores

Public Policies: 3.75 / 10
Developers and Ecosystem: 0.75 / 10
Grassroots Adoption: 5.26 / 10

Hungary

EDRIX Score: 5.27
EOTRIX Score: 3.23
Tier: Specialized Contender

Overall Assessment

Hungary's digital resilience is characterized by a reliance on well-managed digital infrastructure in its public and private sectors. However, this is undermined by a weak national policy on open source and one of the EU's smallest per-capita developer ecosystems.

2020 Baseline

In 2020, Hungary was an "emerging" country with a balanced, medium-level approach and clear political will, demonstrated through legally binding decrees promoting OSS.

2024 Progression

The promotion of open source appears to have slowed since the mid-2010s. The national strategy that replaced the one for 2014-2020 does not mention open source. However, OSS continues to be used at the local level, for example by the Budapest City Council.

2025 Data-Driven Analysis

Hungary has high scores for Public Sector (8.58) and Private Sector (8.24) digital health. This is sharply contrasted by a weak Public Policy score (2.50) and a very small per-capita Developer Ecosystem (1.57).

Strengths

• Public/Private Sector Resilience: A high degree of sovereignty in its core national digital infrastructure.

Weaknesses

• Public Policy: Lacks a current, active national strategy promoting open source or digital sovereignty.
• Developer Ecosystem: Has one of the smallest developer communities in the EU on a per-capita basis.

Outlook

Hungary's resilience depends on maintaining its existing infrastructure. To build a more sustainable and autonomous digital future, it would need to reverse the recent trend and reinvest in a national open source strategy and, critically, in developing its domestic tech talent pool.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 1.57 / 10
Grassroots Adoption: 5.44 / 10
Private Sector Resilience: 8.24 / 10
Public Sector Resilience: 8.58 / 10

EOTRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 1.80 / 10
Grassroots Adoption: 5.40 / 10

Ireland

EDRIX Score: 3.10
EOTRIX Score: 4.49
Tier: Untapped Potential

Overall Assessment

Ireland's profile is defined by a deliberate lack of government policy on digital sovereignty, which places it last in the EU on that measure. This is paradoxically combined with a strong domestic developer ecosystem that operates without state support, creating a fragile and dependent model of resilience.

Sobering Reality

The official websites for the city of Dublin, the President, and the Government are all hosted in the United States. The President's website also uses US-based Cloudflare for its DNS. This results in a very low Public Sector Digital Resilience score of 2.07.

2020 Baseline

In 2020, Ireland was a "laggard," a position dictated by its unique economic role as the European home for major US tech firms. This resulted in a complete absence of any formal open source policy.

2024 Progression

There has been a moderate increase in OSS usage, driven by a shift towards reusable digital solutions. The establishment of the Open Ireland Network (OIN) in 2021 provides a crucial community hub, but formal government recognition remains limited.

2025 Data-Driven Analysis

Ireland ranks last for Public Policy, with a score of 0.00. This is sharply contrasted by a strong Developer Ecosystem score (7.24). Its resilience scores for the Public and Private Sectors are among the lowest in the EU, reflecting a high dependency on non-sovereign, particularly US, technology.

Strengths

• Developer Ecosystem: A vibrant and large per-capita developer community.
• Grassroots Adoption: A high Linux Desktop Share (5.91%), the second highest in the EU.

Weaknesses

• Public Policy: A score of zero indicates a complete absence of a national strategy for digital sovereignty.
• Public/Private Sector Resilience: Very high dependency on non-EU technology providers.

Outlook

Ireland's resilience is entirely dependent on its private sector and community talent pool. This is a precarious position, as this ecosystem is not supported by a national strategy. A shift in government policy would be required for Ireland to build a more sustainable and autonomous digital future.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 0.00 / 10
Developers and Ecosystem: 7.24 / 10
Grassroots Adoption: 5.62 / 10
Private Sector Resilience: 0.57 / 10
Public Sector Resilience: 2.07 / 10

EOTRIX Pillar Scores

Public Policies: 0.00 / 10
Developers and Ecosystem: 7.94 / 10
Grassroots Adoption: 5.55 / 10

Italy

EDRIX Score: 4.64
EOTRIX Score: 4.12
Tier: Untapped Potential

Overall Assessment

Italy represents the EU's most severe paradox in digital sovereignty: a country with a top-tier public policy for open source that is completely undermined by a near-total absence of a domestic developer ecosystem, resulting in a critical failure of implementation.

Sobering Reality

The website for the President of Italy is hosted in the US, and the email for the city of Rome is run by Microsoft. This limits its Public Sector Digital Resilience score to a moderate 5.98.

2020 Baseline

In 2020, Italy was a "contender," whose strength lay in its world-class open source software policy framework, which compensated for its underdeveloped top-down strategic sovereignty agenda.

2024 Progression

Italy maintains its strong, policy-driven commitment to OSS. The national policy framework, including the Guidelines on the Acquisition and Reuse of Software, continues to strongly favor open source. The Competence Centre for Reuse and Open Source (CCROS) was established in 2020 to support public administrations.

2025 Data-Driven Analysis

The data highlights an extreme disconnect. Italy has an excellent Public Policy score (8.75), among the best in the EU. Inexplicably, it scores an absolute zero for its Developer Ecosystem (0.00), the lowest in the EU. This suggests that despite its world-class strategy, it has not cultivated a local open source talent base.

Strengths

• Public Policy: One of the most mature and legally robust open source policy frameworks in Europe.

Weaknesses

• Developer Ecosystem: A score of zero indicates a critical lack of a visible, per-capita open source developer community and recognized sovereign solutions. This is the most severe weakness in the entire index.

Outlook

Italy faces an urgent and fundamental challenge. Its sophisticated policies are meaningless without the technical capacity to implement them. The country must prioritize a massive investment in tech education, developer community support, and incentives for local open source development. Without this, its digital sovereignty ambitions will remain purely theoretical.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 8.75 / 10
Developers and Ecosystem: 0.00 / 10
Grassroots Adoption: 3.39 / 10
Private Sector Resilience: 5.11 / 10
Public Sector Resilience: 5.98 / 10

EOTRIX Pillar Scores

Public Policies: 8.75 / 10
Developers and Ecosystem: 0.00 / 10
Grassroots Adoption: 3.62 / 10

Latvia

EDRIX Score: 5.40
EOTRIX Score: 5.06
Tier: Specialized Contender

Overall Assessment

Latvia is an emerging country with a balanced but still developing profile. Its primary strength lies in a respectable developer ecosystem, but its progress is constrained by an underdeveloped national policy framework.

Sobering Reality

Email services for the city of Riga are run by Microsoft, and for the Cabinet of Ministers by Amazon. The DNS for the President's website is managed by US-based Cloudflare. These dependencies limit its Public Sector Digital Resilience score to a moderate 5.84.

2020 Baseline

In 2020, Latvia was in the "emerging" tier, with a pragmatic, procurement-focused OSS policy and a strategy of embedding its security in wider Euro-Atlantic frameworks.

2024 Progression

Latvia's approach has been shaped by a focus on fair procurement. Key policies like the 2017 Cabinet of Ministers Regulation ensure that software for digital public services is licensed as OSS. The Latvian Open Technology Association (LATA) remains an influential advocate.

2025 Data-Driven Analysis

Latvia's data shows a balanced profile. Its main strength is a good Developer Ecosystem score (7.99), supported by a high number of EuroStack Solutions per capita. This is balanced against a weak Public Policy score (3.75) and moderate performance in other areas.

Strengths

• Developer Ecosystem: A relatively high number of developers and sovereign solutions for its size.

Weaknesses

• Public Policy: The national strategy for open source and digital sovereignty is not yet mature or comprehensive.

Outlook

Latvia shows clear potential for growth. It has a foundation of technical talent that could be better leveraged with a more robust and supportive national policy. Strengthening its strategic framework is the key to unlocking its potential and moving up in the rankings.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 3.75 / 10
Developers and Ecosystem: 7.99 / 10
Grassroots Adoption: 4.29 / 10
Private Sector Resilience: 5.12 / 10
Public Sector Resilience: 5.84 / 10

EOTRIX Pillar Scores

Public Policies: 3.75 / 10
Developers and Ecosystem: 7.53 / 10
Grassroots Adoption: 3.90 / 10

Lithuania

EDRIX Score: 3.49
EOTRIX Score: 3.98
Tier: Untapped Potential

Overall Assessment

Lithuania is a lower-tier performer that shows clear potential for improvement. Despite a very weak current policy score, recent legislative changes and a surprisingly healthy developer ecosystem suggest it is on an upward trajectory.

Sobering Reality

All three of Lithuania's core public websites—for the capital Vilnius, the President, and the Government—are hosted in the US, use US-based Cloudflare for DNS, and have their email services run by Microsoft or Google. This results in a very low Public Sector Digital Resilience score of 2.98.

2020 Baseline

In 2020, Lithuania was a "laggard," with underdeveloped frameworks and one of the weakest OSS ecosystems in the EU, critically hampered by the absence of a civil society ecosystem.

2024 Progression

Lithuania has advanced significantly. A new 2024 law mandates storing public code in a state-run repository and prioritizes open source solutions. The government has also begun sharing resources on GitHub, fostering a more open environment.

2025 Data-Driven Analysis

The data reflects this transitional phase. Its Public Policy score is very low (1.25), reflecting its recent starting point. However, its Developer Ecosystem score (6.44) is surprisingly strong and well above the EU average. This is contrasted by low scores for its public and private sector digital infrastructure.

Strengths

• Developer Ecosystem: A relatively large and active per-capita developer community.
• New Legislation: The 2024 law provides a strong foundation for future policy development.

Weaknesses

• Public Policy: The current policy framework is immature, resulting in one of the lowest scores in the EU.
• Public/Private Sector Resilience: Core digital infrastructure still shows a high degree of dependency.

Outlook

Lithuania is a country to watch. It has the two key ingredients for rapid improvement: political will (in the form of new legislation) and technical talent. If it can successfully implement its new law and leverage its developer community, it could rise quickly through the ranks.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 1.25 / 10
Developers and Ecosystem: 6.44 / 10
Grassroots Adoption: 4.87 / 10
Private Sector Resilience: 1.91 / 10
Public Sector Resilience: 2.98 / 10

EOTRIX Pillar Scores

Public Policies: 1.25 / 10
Developers and Ecosystem: 6.27 / 10
Grassroots Adoption: 4.41 / 10

Luxembourg

EDRIX Score: 5.65
EOTRIX Score: 4.93
Tier: Specialized Contender

Overall Assessment

Luxembourg has successfully carved out a niche as a hub for sovereign technology development and hosting, reflected in its strong developer ecosystem. However, this specialized strength is not part of a broader national strategy, resulting in weak public policy and average grassroots adoption.

2020 Baseline

In 2020, Luxembourg was an "emerging" nation with a moderately strong and unique strategic position as a trusted data hub for Europe, but an underdeveloped formal policy for open source.

2024 Progression

Luxembourg's incentives have focused on emerging technologies and cybersecurity. The Clausen Project, a key new initiative, will establish a national OSPO and contribute open source tools for cybersecurity, linking OSS to its strategic goals.

2025 Data-Driven Analysis

Luxembourg's profile is dominated by its high Developer Ecosystem score (9.48), driven by having the most vetted EuroStack Solutions per capita in the EU. This is offset by a low Public Policy score (2.50) and moderate Grassroots Adoption (4.64), reflecting its niche focus.

Strengths

• Developer Ecosystem: A very high density of developers and the highest number of sovereign solutions per capita, making it a key development hub.

Weaknesses

• Public Policy: Lacks a comprehensive national strategy for digital sovereignty beyond its role as a data hub.
• Grassroots Adoption: The general population does not show a strong preference for open source technologies.

Outlook

Luxembourg's strategy as a specialized tech hub is effective within its niche. To improve its overall national resilience, it would need to develop a broader strategy that encourages wider adoption of sovereign technologies within its own public and private sectors, a step it is beginning to take with the creation of a national OSPO.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 9.48 / 10
Grassroots Adoption: 4.64 / 10
Private Sector Resilience: 6.13 / 10
Public Sector Resilience: 5.50 / 10

EOTRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 7.13 / 10
Grassroots Adoption: 5.16 / 10

Malta

EDRIX Score: 2.76
EOTRIX Score: 4.83
Tier: Untapped Potential

Overall Assessment

Malta represents the EU's most severe case of a policy-implementation disconnect. It has a strong, mature open source policy on paper, but this has failed to translate into any measurable real-world outcomes, resulting in the lowest overall digital resilience score in the Union.

Sobering Reality

The official websites for the capital Valletta, the President, and the Prime Minister's Office are all hosted in the United States. This results in a Public Sector Digital Resilience score of 0.00, the lowest in the EU.

2020 Baseline

In 2020, Malta was an "emerging" country whose standing was based entirely on the strength of its exceptionally well-rounded and mature OSS policy framework.

2024 Progression

The government has remained active in promoting OSS. The 2019 Open Source Software Policy, published by the Malta Information Technology Agency (MITA), encourages cost-effective OSS adoption and gives it equal consideration in procurement.

2025 Data-Driven Analysis

The data reveals a stark failure of implementation. Malta has a strong Public Policy score (7.50). However, it scores an absolute zero across the Grassroots Adoption, Private Sector, and Public Sector pillars. This means that, despite good policies, there is no measurable use of sovereign alternatives among its citizens, businesses, or government.

Strengths

• Public Policy: A mature and well-regarded national policy for open source software.
• Developer Ecosystem: A surprisingly strong developer community for its size.

Weaknesses

• Total Lack of Adoption and Sovereign Infrastructure: Scores of zero across three pillars indicate a complete disconnect between policy and practice. It has the lowest grassroots adoption and least sovereign infrastructure in the EU.

Outlook

Malta faces a critical challenge of execution. It must urgently investigate why its well-regarded policies have had no tangible impact. Without addressing the barriers to adoption in both its public and private sectors, its digital sovereignty will remain a purely theoretical concept.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 7.50 / 10
Developers and Ecosystem: 6.32 / 10
Grassroots Adoption: 0.00 / 10
Private Sector Resilience: 0.00 / 10
Public Sector Resilience: 0.00 / 10

EOTRIX Pillar Scores

Public Policies: 7.50 / 10
Developers and Ecosystem: 7.00 / 10
Grassroots Adoption: 0.00 / 10

Netherlands

EDRIX Score: 6.24
EOTRIX Score: 7.93
Tier: Specialized Contender

Overall Assessment

The Netherlands presents a stark paradox: it is a leader in open source policy and boasts the EU's most vibrant developer ecosystem, yet this strength is not reflected in the technological choices of its public and private sectors, which show a high degree of dependency.

Sobering Reality

The official website for the capital, Amsterdam, is hosted in the US, uses US-based Akamai for DNS, and has its email run by Microsoft. This significantly impacts its otherwise strong profile.

2020 Baseline

In 2020, the Netherlands was a "solid contender," with a balanced and mature approach across both strategic autonomy and open source policy.

2024 Progression

The Netherlands has made significant strides in formalizing its OSS strategy. It is actively pursuing an "open unless" policy, mandating the sharing of source code. A key development is the creation of a national Open Source Programme Office (OSPO) to implement this policy.

2025 Data-Driven Analysis

The Netherlands ranks #2 in the EOTRIX due to perfect 10.00 scores in Public Policy and Developer Ecosystem. It has the highest density of GitHub developers per capita in the EU. This strength is sharply contrasted by very low scores for Private Sector (3.57) and Public Sector (4.29) digital health, indicating a significant dependence on non-sovereign technology providers in its core internet infrastructure.

Strengths

• Developer Ecosystem: The highest density of GitHub developers in the EU.
• Public Policy: A mature, institutionalized policy with a clear "open unless" mandate and a dedicated OSPO.

Weaknesses

• Public/Private Sector Resilience: A surprisingly high dependency on non-sovereign technology for core national domains, indicating a major policy-implementation gap.

Outlook

The Netherlands has all the necessary components—policy and talent—to be a top-tier leader in digital resilience. Its critical challenge is to bridge the gap between its capabilities and its real-world implementation. The new OSPO's success will be measured by its ability to steer both public and private sectors toward adopting more sovereign solutions.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 10.00 / 10
Developers and Ecosystem: 9.55 / 10
Grassroots Adoption: 3.80 / 10
Private Sector Resilience: 3.57 / 10
Public Sector Resilience: 4.29 / 10

EOTRIX Pillar Scores

Public Policies: 10.00 / 10
Developers and Ecosystem: 10.00 / 10
Grassroots Adoption: 3.80 / 10

Poland

EDRIX Score: 5.98
EOTRIX Score: 4.28
Tier: Specialized Contender

Overall Assessment

Poland's digital resilience profile is defined by strong grassroots support for sovereign technologies, particularly browsers. This bottom-up strength is notable but is not matched by government policy or a well-developed domestic open source ecosystem.

Sobering Reality

The official website for the President of Poland is hosted in the US and uses US-based Cloudflare for its DNS, a significant vulnerability that impacts its Public Sector Digital Resilience score (7.97).

2020 Baseline

In 2020, Poland was an "emerging" nation with a significant split between its geopolitical posture and its domestic software policies. It had a strong strategic agenda but an underdeveloped formal open source policy framework.

2024 Progression

Poland still lacks a dedicated governmental body for promoting OSS. However, the 2021 Law on open data allows agencies to open-source publicly funded software. Initiatives are emerging in specific sectors, like the e-Health Centre's preference for open-source solutions.

2025 Data-Driven Analysis

Poland's standout feature is its high Grassroots Adoption score (7.40), driven by the EU's highest Sovereign Browser Share (27.89%). This indicates a public preference for alternatives to dominant tech. However, this is offset by a weak Public Policy score (5.00) and a small Developer Ecosystem (1.99).

Strengths

• Grassroots Adoption: Strongest public preference for sovereign browsers in the EU.
• Public/Private Sector Resilience: Above-average scores for the sovereignty of its digital infrastructure.

Weaknesses

• Public Policy: Lacks a coordinated national strategy and dedicated governance for open source.
• Developer Ecosystem: A small per-capita developer base and few recognized sovereign solutions.

Outlook

Poland has a clear mandate from its citizens for greater digital sovereignty. The government has an opportunity to capitalize on this by developing a national strategy that supports the growth of a domestic developer ecosystem. Without this, its resilience will remain limited to the consumption choices of its population.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 5.00 / 10
Developers and Ecosystem: 1.99 / 10
Grassroots Adoption: 7.40 / 10
Private Sector Resilience: 7.54 / 10
Public Sector Resilience: 7.97 / 10

EOTRIX Pillar Scores

Public Policies: 5.00 / 10
Developers and Ecosystem: 2.17 / 10
Grassroots Adoption: 5.66 / 10

Portugal

EDRIX Score: 5.15
EOTRIX Score: 4.91
Tier: Specialized Contender

Overall Assessment

Portugal demonstrates a significant gap between its strong, mature public policy on open source and its real-world outcomes. While its strategic framework is robust, it has not yet succeeded in fostering a strong developer ecosystem or driving widespread grassroots adoption.

Sobering Reality

Both the official website for the capital, Lisbon, and the Government are hosted in the US. The President's website is also hosted on US-based Akamai infrastructure. This results in a moderate Public Sector Digital Resilience score of 6.01.

2020 Baseline

In 2020, Portugal was a "solid contender," with a balanced profile that featured a particularly strong and mature open source policy framework complemented by a dedicated government agency.

2024 Progression

Portugal continues to advance its use of OSS. The "Common Model for Design and Development of Digital Services (Mosaico)" establishes the principle to "Make new code open source." The Administrative Modernization Agency (AMA) remains a key policymaker.

2025 Data-Driven Analysis

Portugal's profile is defined by this policy-implementation gap. It has a strong Public Policy score (7.50), reflecting its long-standing commitment to OSS. However, this is contrasted by a very low Grassroots Adoption score (2.99) and a moderate Developer Ecosystem (4.24).

Strengths

• Public Policy: A mature, legally-backed national strategy for open source with dedicated governance.

Weaknesses

• Grassroots Adoption: One of the lowest rates of citizen and business adoption of open source technologies in the EU.
• Developer Ecosystem: An average-sized developer community that does not match its policy ambitions.

Outlook

Portugal has the right strategic framework in place, but it needs to focus on execution. The key to improving its resilience will be to understand and address the barriers to grassroots adoption and to implement programs that actively grow its domestic developer community.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 7.50 / 10
Developers and Ecosystem: 4.24 / 10
Grassroots Adoption: 2.99 / 10
Private Sector Resilience: 5.04 / 10
Public Sector Resilience: 6.01 / 10

EOTRIX Pillar Scores

Public Policies: 7.50 / 10
Developers and Ecosystem: 4.64 / 10
Grassroots Adoption: 2.60 / 10

Romania

EDRIX Score: 4.02
EOTRIX Score: 2.50
Tier: Untapped Potential

Overall Assessment

Romania is in the lower tier of EU digital resilience, with low scores across all major pillars. It lacks a strong national policy, a significant developer ecosystem, and widespread grassroots adoption, indicating foundational challenges to its digital sovereignty.

2020 Baseline

In 2020, Romania was an "emerging" country where a geopolitically motivated strategic agenda was completely mismatched with its very weak domestic software and OSS policies.

2024 Progression

Romania's vibrant community of OSS enthusiasts continues to be the main driver of adoption. While a central government entity for OSS is still lacking, associations like ROSI and Code4Ro continue to work with the government to advocate for OSS solutions.

2025 Data-Driven Analysis

The data confirms its laggard status. Romania has a very weak Public Policy score (2.50), a small Developer Ecosystem (0.97), and below-average Grassroots Adoption (4.60).

Strengths

• Community: An active and enthusiastic grassroots community, though this is not captured directly in the index metrics.

Weaknesses

• Public Policy: Lacks a coherent, institutionalized national strategy for open source.
• Developer Ecosystem: A very small per-capita developer community.
• Public/Private Sector Resilience: Below-average sovereignty of its core digital infrastructure.

Outlook

For Romania to improve its digital resilience, it needs to move from relying on its community to establishing a formal, supportive government policy. This would involve creating a national strategy, providing funding, and investing in skills to turn its community's enthusiasm into a strategic national asset.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 0.97 / 10
Grassroots Adoption: 4.60 / 10
Private Sector Resilience: 5.60 / 10
Public Sector Resilience: 6.43 / 10

EOTRIX Pillar Scores

Public Policies: 2.50 / 10
Developers and Ecosystem: 0.88 / 10
Grassroots Adoption: 4.13 / 10

Slovakia

EDRIX Score: 5.25
EOTRIX Score: 3.55
Tier: Specialized Contender

Overall Assessment

Slovakia is a lower-tier performer whose efforts to build digital resilience are severely hampered by a near-nonexistent open source developer ecosystem and a public policy that, while improving, still lacks maturity.

Sobering Reality

The official website for the capital, Bratislava, is hosted in the US, uses US-based Cloudflare for DNS, and has its email run by Microsoft, a critical set of dependencies for a major public institution.

2020 Baseline

In 2020, Slovakia was a "laggard." It had legally binding OSS policies on paper but had failed to translate them into practice due to a lack of institutional leadership.

2024 Progression

Slovakia is increasingly embracing OSS. The legal framework has shifted to mandate software reuse, and the 2021 National Concept of Informatisation advises the public sector to increase its use of open source software. Civic associations like Slovensko.Digital remain crucial.

2025 Data-Driven Analysis

Slovakia's key weakness is a near-zero Developer Ecosystem score (0.32), indicating an almost complete lack of a domestic open source development base. Its Public Policy score (5.00) is moderate, and its Grassroots Adoption (5.60) is average.

Strengths

• Grassroots Adoption: Moderate adoption of open source and sovereign browsers among the public.

Weaknesses

• Developer Ecosystem: One of the weakest in the EU, representing a critical capacity gap.
• Public Policy: The policy framework is still developing and lacks the institutional backing of higher-ranked countries.

Outlook

Slovakia's primary challenge is foundational: it must build a domestic tech talent pool. Without developers to build and maintain sovereign solutions, even the best policies will have limited impact. Strategic investment in tech education and community building is essential for any meaningful progress.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 5.00 / 10
Developers and Ecosystem: 0.32 / 10
Grassroots Adoption: 5.60 / 10
Private Sector Resilience: 7.53 / 10
Public Sector Resilience: 7.80 / 10

EOTRIX Pillar Scores

Public Policies: 5.00 / 10
Developers and Ecosystem: 0.43 / 10
Grassroots Adoption: 5.23 / 10

Slovenia

EDRIX Score: 6.50
EOTRIX Score: 5.43
Tier: Leader

Overall Assessment

Slovenia is a solid and balanced performer in the EU's mid-tier, demonstrating consistent strengths across public policy and the digital health of its public and private sectors. It lacks a standout, chart-topping strength but also has no critical weaknesses.

2020 Baseline

In 2020, Slovenia was a "solid emerging country," with its key strength in its institutional approach to open source governance, which drove digital autonomy even without an explicit top-down strategy.

2024 Progression

Slovenia's open source infrastructure remains extensive but often "invisible." The new Ministry of Digital Transformation, established in 2023, is now coordinating the country's digital strategy and has recognized open source as a key component for sustainable development.

2025 Data-Driven Analysis

Slovenia's profile is remarkably balanced. It has a strong Public Policy score (7.50) and high scores for Public Sector (8.03) and Private Sector (7.79) resilience. Its performance is moderated by average scores in the Developer Ecosystem (3.81) and Grassroots Adoption (5.39) pillars.

Strengths

• Balanced Profile: Consistent, above-average performance across policy and infrastructure resilience.
• Public Sector Health: Slovenian public institutions utilize a relatively sovereign technology stack.

Weaknesses

• Developer Ecosystem: The per-capita developer community is not large enough to be a strategic asset.

Outlook

Slovenia is on a stable and positive trajectory. The formal recognition of open source by the new ministry provides an opportunity to build on its solid foundation. A strategic focus on growing its domestic developer talent could elevate it into the next tier of performers.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 7.50 / 10
Developers and Ecosystem: 3.81 / 10
Grassroots Adoption: 5.39 / 10
Private Sector Resilience: 7.79 / 10
Public Sector Resilience: 8.03 / 10

EOTRIX Pillar Scores

Public Policies: 7.50 / 10
Developers and Ecosystem: 3.14 / 10
Grassroots Adoption: 5.66 / 10

Spain

EDRIX Score: 4.78
EOTRIX Score: 4.86
Tier: Untapped Potential

Overall Assessment

Spain is a clear example of a country with a strong policy vision for open source that has yet to be matched by implementation capacity. Its excellent legal and strategic framework is undermined by a weak domestic developer ecosystem and low grassroots adoption.

Sobering Reality

The official website for the capital city, Madrid, relies on US-based Akamai for both web hosting and DNS, and uses Microsoft for its email services. The website for the Monarchy also has its email hosted outside the EU. These dependencies limit its Public Sector Digital Resilience score to a moderate 5.22.

2020 Baseline

In 2020, Spain was a "contender," a powerful example of a country whose world-class open source framework elevated its overall standing despite an underdeveloped top-down strategic sovereignty agenda.

2024 Progression

Spain's use of OSS continues to advance, especially at regional and municipal levels. The Law 40/2015 provides the legal framework, mandating reuse and interoperable repositories. The government has launched major initiatives like ALIA, a public AI infrastructure with open source models.

2025 Data-Driven Analysis

The policy-implementation gap is clear in the data. Spain has an excellent Public Policy score (8.75). However, it is let down by a very weak Developer Ecosystem (2.54) and low Grassroots Adoption (3.26).

Strengths

• Public Policy: A comprehensive, legally-grounded framework for open source in the public sector.

Weaknesses

• Developer Ecosystem: A small per-capita developer community and a low number of recognized sovereign solutions.
• Grassroots Adoption: Low uptake of open source technologies among citizens and businesses.

Outlook

Spain has laid the right policy foundation. Its next, most critical step is to invest heavily in building domestic capacity. This means fostering its developer community, promoting tech education, and creating incentives for both public and private sectors to adopt the open source solutions mandated by its own policies.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 8.75 / 10
Developers and Ecosystem: 2.54 / 10
Grassroots Adoption: 3.26 / 10
Private Sector Resilience: 4.14 / 10
Public Sector Resilience: 5.22 / 10

EOTRIX Pillar Scores

Public Policies: 8.75 / 10
Developers and Ecosystem: 2.76 / 10
Grassroots Adoption: 3.08 / 10

Sweden

EDRIX Score: 6.80
EOTRIX Score: 7.48
Tier: Leader

Overall Assessment

Sweden remains a top-tier leader in digital sovereignty, showcasing a balanced model that combines strong, decentralized public policy with a thriving developer ecosystem. While its strategic direction is clear and its capacity to build is high, its overall performance is slightly held back by moderate grassroots adoption among the general population.

Sobering Reality

The official website for the Government of Sweden is hosted in the US, and the email service for the Royal Court is run by Microsoft. These dependencies limit its Public Sector Digital Resilience score to a moderate 6.18.

2020 Baseline

In 2020, Sweden was a "leader," demonstrating a highly mature, balanced, and effective approach across both strategic and open source dimensions. Its strategy was practical and decisive.

2024 Progression

Sweden's progress continues in a decentralized but effective manner. The Agency for Digital Government (DIGG) leads with its 2022 Software Development Policy, which mandates that its procured software be predominantly open source. Civil society networks like NOSAD are key to sharing best practices.

2025 Data-Driven Analysis

Sweden's high ranking is based on a perfect Public Policy score (10.00) and a strong Developer Ecosystem score (7.66), supported by a top-3 rank for per-capita GitHub developers. This indicates it has both the strategic vision and the talent to execute it. Its main area for improvement is Grassroots Adoption (4.10), where its market share for Linux and open source browsers is average.

Strengths

• Public Policy: A mature, agency-led approach to open source procurement and development.
• Developer Ecosystem: A high density of developers and a strong community of practice.

Weaknesses

• Grassroots Adoption: The uptake of open source and sovereign technologies by the general public and businesses is not as high as in other leading nations.

Outlook

Sweden is well-positioned to maintain its leadership. The key to improving its overall resilience will be to foster greater grassroots adoption, potentially through public awareness campaigns or incentives that encourage citizens and businesses to choose more sovereign technology alternatives.

Extra Material

OSOR Fact Sheet (PDF)

EDRIX Pillar Scores

Public Policies: 10.00 / 10
Developers and Ecosystem: 7.66 / 10
Grassroots Adoption: 4.10 / 10
Private Sector Resilience: 6.07 / 10
Public Sector Resilience: 6.18 / 10

EOTRIX Pillar Scores

Public Policies: 10.00 / 10
Developers and Ecosystem: 8.28 / 10
Grassroots Adoption: 4.14 / 10