I want to address two issues.

1.  When a government agency issues a procurement, there is cost and effort in preparing a proposal.  These costs can be justified by a proprietary provider.  However, for the agency to use open source requires either that a provider bid based on the use of open source, and generally for other services included in the procurement, or that someone take on the cost and effort to prepare the proposal.  This especially applies if the procurement is for software, and those issuing the procurement take the view that they don't know what is out there and want to see what the responses are.  There needs to be some modification of the rules to either provide that open source is considered before issuing the procurement, that someone is paid or otherwise incentivized to bid on behalf of open source, or that some other scheme is constructed to ensure that open source is considered.

2.  There is a Federal definition for "voluntary consensus standards."  There is no Federal definition of "open standards" or "open formats."  There are a variety of definitions issued by a variety of organizations, but none recognized for Federal purposes.  This is an issue in the Smart Grid, where legislation mandates the use of open standards but several non-open standards were included in initial drafts of the Framework/Roadmap.  The final Framework/Roadmap is due to be issued and it remains to be seen how my comments on those standards were resolved.