They mean investment time.. i.e. if they need to change it or develop on it, the cost (money and time) of doing so vs the upfront cost of proprietary software. We must also remember that because it will be public sector, prices triple immediately.
plus support costs for, say, Linux are higher than Windows... any muppet can support a Windows environment so salaries are generally lower than an equivalent employee capable of supporting Linux (although ironically, it could be argued that supporting Linux is easier because it's more solid and dependable than Windows).
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