Well, on a national level when I think of Germany… Limux was very successful and not unpopular with users in the authorities. It wasn’t problematic either, but failed because Munich’s mayor is an MS fanboy and MS helped with lobbying. If you look today, Schleswig Holstein, for example, uses a lot of open source and other federal states are slowly following suit. Lobbying is causing extreme problems.
So the main problem is lobbying and corrupt politicans
Of course, the industry will not be a pioneer. They use the most favorable offer for them and as long as there are no serious reasons, they will not switch unnecessarily. After all, they want to make a profit. So the countries have to be pioneers. This is where the problems mentioned above come in.
The city council was overwhelmingly in favor at the time, as was the administration. There were also only positive independent studies until the very end, when a negative one came from a company that cooperates with Microsoft. That was the point at which the city council and administration were suddenly against Limux and made themselves dependent on MS again. There were also negotiations at the time regarding a Microsoft headquarters, which was subsequently built.