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G00168504

Cloud Computing in Government: Private,


Public, Both or None?
Published: 30 June 2009
Analyst(s): Andrea Di Maio
Government organizations throughout the world are considering benefits
and risks associated with cloud computing. However, there is still
considerable confusion about whether they should use a public cloud or a
private one, and what the characteristics of the latter are.
Key Findings

Public or private cloud computing are just alternative sourcing options for government
organizations that want to use a scalable and elastic virtualized infrastructure or application as a
service.

Cloud computing services used by government can be managed by government, by external


providers or by a combination of both.

Cloud computing services for government pose similar challenges to any other kind of shared
government services, so that reasons for success or failure will depend on the appropriateness
of the shared-service governance more than on the technical adequacy of the solution.
Recommendations

Government IT leaders in agencies that are evaluating the use of cloud computing should look
at cloud computing purely as a sourcing option and evaluate the benefits, costs and risks of
different cloud services models.

Although cloud services put greater focus on ease of use, economies of scale and elasticity,
government IT leaders in agencies that are potential users of shared government cloud services
should carefully consider their (and their peer agencies') track record as users of other shared
services in the past.
Table of Contents
Analysis.................................................................................................................................................. 2
1.0 Introduction................................................................................................................................ 2
2.0 The Different Flavors of Government Cloud Services...................................................................3
3.0 Governance of Government Cloud Services............................................................................... 7
4.0 Hybrid Government Cloud Services............................................................................................ 8
5.0 Choosing a Flavor of Cloud Services.......................................................................................... 9
Recommended Reading.......................................................................................................................10
List of Figures
Figure 1. The Spectrum of Cloud Services in Government...................................................................... 4
Figure 2. Cloud Computing in Government Use and Ownership.........................................................6
Analysis
1.0 Introduction
Since the theme of cloud computing in government began to generate lots of interest and activity
(especially with the incoming Obama administration in the U.S.), discussions have revolved around
whether government should rely on and even run its own "private" cloud services or whether it
should leverage so-called "public cloud" services. As pointed out in "Cloud Computing for
Government Is Cloudy," a number of risks are associated with the use of infrastructure that is not at
arm's-length control: Risks include the fact that data could be located in jurisdictions that make it
vulnerable to privacy violations, possible constraints to meeting requests for e-discovery, and
inadequate service levels in areas such as availability and reliability.
On the other hand, it is important for government agencies to explore public cloud computing
services too, in order to achieving savings and economies of scale on less mission-critical
workloads (see "Government in the Cloud: Much More Than Computing").
Gartner's definition of cloud computing is a style of computing where scalable and elastic IT-
enabled capabilities are delivered as a service to external customers using Internet technologies.
The Gartner definition of private cloud (see "Private Cloud Computing: The Steppingstone to the
Cloud") is a style of computing where scalable and elastic IT-enabled capabilities are delivered as a
service to internal customers using Internet technologies.
In particular, a private cloud implementation has a bounded membership that is exclusive (i.e., only
approved members can participate, and approval is contingent on some defined membership
boundaries). For example, membership may be limited to employees and designees of a given
company. Alternatively, services may be limited to a set of businesses in a given industry, or they
might be limited to an industry trade group.
Page 2 of 13 Gartner, Inc. | G00168504
There is a spectrum from fully private services to fully public services that blurs distinctions of
ownership or control. There are many examples that fall somewhere between purely public cloud
services and private cloud services, including business partners sharing resources, private cloud
services built on top of public cloud services, specialized services limited to a small number of
enterprises in a specific industry, and so forth (see Note 1).
This research aims to provide advice to IT leaders in government organizations who are looking at
different options concerning cloud computing as well as to those who are planning the development
of so-called private government clouds. The definitions and categorizations provided in this
research are likely to evolve as a consequence of how government adoption of cloud computing, as
well as market offerings, develops in the coming years.
2.0 The Different Flavors of Government Cloud Services
When looking at the difference between private and public cloud services over the continuum
mentioned above, one must appreciate that the concept "internal customer" in government is rather
broad, as it covers both individual agencies and clusters of agencies. Further, the concept of limited
membership can range from agencies in the same jurisdiction and domain (e.g., defense or
intelligence) or even include nongovernment entities, where such extended membership does not
jeopardize any of the security and data location constraints that government agencies may require
in order to fully utilize cloud computing services.
In "The Spectrum of Public-to-Private Cloud Computing," we said that there are two key
dimensions that separate "public" cloud computing from private cloud computing: (1) service
access; and (2) service ownership and control. As far as the former goes, services can be limited to
users in the single enterprise that owns the services (i.e., single tenant), or limited to a group of
organizations (multitenant), or accessible to anyone (self-selected), or some partially limited variation
in between. As far as the latter, the service and its assets can be owned and controlled by the
enterprise using the service, by a third party or by some variation in between.
This applies to government, too. Cloud computing services can be exclusive to a particular agency,
used by some, many or all agencies in a given jurisdiction, or can be used also by nongovernment
organizations. As far as ownership is concerned, they can be run by an individual agency (large
enough to be able to ensure scalability and elasticity), by a shared-service organization within
government, or by an external service provider.
However, some aspects are peculiar to government.
The first one is how agencies can collectively access cloud computing services. Over the past
several years, there have been many attempts to establish consolidated and shared-service
initiatives across different agencies (see "How Governments Are Addressing the IT Consolidation
Conundrum"). Many of these initiatives are running or in the making, and it is very important for
government organizations to position cloud computing services against such initiatives.
Second, it is important to make a distinction between ownership and control. Ownership concerns
the provider of cloud services that are used by government agencies. The owner can be either a
Gartner, Inc. | G00168504 Page 3 of 13
single government organization, or a cluster of government organizations sharing resources, or a
third party.
Regardless of ownership, government organizations need to exercise different levels of control on
how those services are delivered. Some of this may be granted by the programmatic interface of
those services, but some areas like data location, security, availability and e-discovery (see "Cloud
Computing for Government Is Cloudy"), where control is needed for regulatory compliance
purposes, may require peculiar contractual constraints.
Figure 1 illustrates the continuum from private to public cloud services from the perspective of: (1)
who accesses the service (a single agency, a limited set of agencies and other organizations, or
anyone); and (2) the weight and influence of contractual constraints (in areas like data location,
security, availability and so forth) that are not supported through the cloud service programmatic
interface, but need to be cast in the contract between clients and providers (be they government or
third parties).
Therefore, while conceptually there is a continuum between private cloud computing services and
public cloud ones, government IT leaders need a clearer segmentation of where cloud computing
services can be used, how the control of resources can be exercised, and how they should be
sourced in relation to existing or emerging consolidation and shared-service initiatives.
Figure 1. The Spectrum of Cloud Services in Government
Contractual
Constraints
Anyone
Exclusive
Service
Access
Many None
Limited
membership
Private Cloud
Services
Agency Cloud
Services
Public Cloud
Services
Contractual
Constraints
Anyone
Exclusive
Service
Access
Many None
Limited
membership
Private Cloud
Services
Agency Cloud
Services
Public Cloud
Services
Private Cloud
Services
Agency Cloud
Services
Public Cloud
Services
Source: Gartner (June 2009)
Page 4 of 13 Gartner, Inc. | G00168504
Let us now take the ownership/sourcing perspective.
In Figure 2, we distinguish the following categories of government cloud computing services (see
Note 2), depending on who has access to cloud services and who owns those services:

Internal single agency. Resources used to deliver the services are owned by a single agency
and are used for its exclusive benefits. From an infrastructure perspective, this is equivalent to
virtualizing significant computing resources of an agency and making them accessible as a
service providing the attributes of scalability and elasticity and more that are typical of the cloud
(see Note 1). In general, single-agency cloud services will support mission-critical workloads in
large and very large agencies, where infrastructure utilization is already very efficient, the
existing infrastructure meets the scalability and elasticity needs of current and prospective
workloads, and low latency is required. For instance, the IT organization of a tax and revenue
agency may establish an internal cloud platform to provide infrastructure or application services
to different divisions.

Shared single agency. Resources are scattered across multiple government organizations but
are virtualized in such a way to provide a per-use service to a single government organization.
These are adequate for large agencies' workloads where higher latency is tolerable (such as
periodic batch applications). There are two different cases, both relatively rare: (1) where
previously independent agencies are merged together; and (2) where a government IT
organization serves different agencies and manages resources that physically reside in those
agencies and uses part of these to provide cloud services to a large agency. In most cases,
though, shared cloud services will be of a multiagency nature i.e., used by several agencies.

External single agency. In this case, a large agency accesses cloud computing services from a
third party (i.e., an IT service vendor). For infrastructure services offerings, this is close to an IT
infrastructure utility model (see Note 3), which is an enterprise-class offering by a provider that
allows government clients to access infrastructure services on the provider's terms.
Alternatively, this could result from a full outsourcing model (see "The Full Outsourcing Model's
Strengths, Weaknesses, Opportunities and Threats").
Gartner, Inc. | G00168504 Page 5 of 13
Figure 2. Cloud Computing in Government Use and Ownership
Anyone
Exclusive
Service
Access
Ownership
Agency Third Party Governmentwide
Limited
membership
Centralized
Multiagency
Cloud
Services
Shared
Multiagency
Cloud
Services
External
Multiagency
Cloud
Services
Internal
Single-Agency
Cloud
Services
Shared
Single-Agency
Cloud
Services
External
Single-Agency
Cloud
Services
Government
Public Cloud
Services
Public Cloud
Services
Anyone
Exclusive
Service
Access
Ownership
Agency Third Party Governmentwide
Limited
membership
Centralized
Multiagency
Cloud
Services
Shared
Multiagency
Cloud
Services
External
Multiagency
Cloud
Services
Internal
Single-Agency
Cloud
Services
Shared
Single-Agency
Cloud
Services
External
Single-Agency
Cloud
Services
Government
Public Cloud
Services
Public Cloud
Services
Centralized
Multiagency
Cloud
Services
Shared
Multiagency
Cloud
Services
External
Multiagency
Cloud
Services
Centralized
Multiagency
Cloud
Services
Shared
Multiagency
Cloud
Services
External
Multiagency
Cloud
Services
Internal
Single-Agency
Cloud
Services
Shared
Single-Agency
Cloud
Services
External
Single-Agency
Cloud
Services
Internal
Single-Agency
Cloud
Services
Shared
Single-Agency
Cloud
Services
External
Single-Agency
Cloud
Services
Government
Public Cloud
Services
Public Cloud
Services
Government
Public Cloud
Services
Public Cloud
Services
Source: Gartner (June 2009)

Centralized multiagency. A large agency or a newly established government organization


provides cloud services that can be used by multiple agencies or by selected nongovernment
organizations (see Note 4) or both. The service is centralized so that there is no participation by
users in the governance of the cloud computing services. An example would be a whole-of-
government IT service provider that already provides a variety of infrastructure and application
services to several agencies and decides to adopt the characteristics of cloud computing
services (see Note 1) to improve utilization and reduce costs.

Shared multiagency. This is a true shared-service arrangement, where a cluster of government


organizations (ranging from a few to all those in a jurisdiction) share the governance of the cloud
computing services they access (see Note 5). Many existing shared-service organizations may
morph into cloud computing service providers where cloud computing characteristics (see Note
1) help deliver better services and the scale of use justifies such a model. The membership in a
multiagency cloud can extend beyond government organizations in a given jurisdiction on a
selective basis (see Note 6).

External multiagency. Several agencies use cloud computing services provided by an external
provider. This can be the evolution of a shared multitenant cloud, an external single-tenant one,
or a third-party offering that provides services to a bounded set of clients. In the first case,
Page 6 of 13 Gartner, Inc. | G00168504
government resources used for a shared model are transferred to an external service provider;
in the second case, an external service provider offers utility arrangements to a cluster of
agencies that can procure those collectively or through a framework contract; in the third case,
a cluster of agencies joins a service that is already provided by an external service provider for
limited membership.
Multiagency services are most appropriate for services that are truly common across several
agencies or an entire jurisdiction. At the infrastructure level, examples include storage (when
jurisdictional boundaries must be enforced), Web content management, middleware, security and
application development tools. At the application level, examples include electronic mail as well as
horizontal line-of-business applications. The spectrum from a centralized to a shared or externalized
model depends on how standard those applications are. Presumably, services in the area of
procurement, budgeting and to some extent financial management fit a more centralized
model, while areas like human resource management, grant management or case management may
require greater configurability, hence benefiting from a shared governance approach. From an
individual-agency perspective, multiagency cloud services also work for any application that
requires processing of private data as well as any agency-specific use of internal collaboration and
social media tools, where confidential and private data may be processed.
When membership is unbounded and services are provided by one or several government
organizations, we talk about government-run public cloud services. These may be more common in
developing countries or in jurisdictions in which government provides infrastructure and application
services to small and midsize businesses as well as specific audience segments (such as students,
people with disabilities, minorities, and so forth). Public cloud services run by governments may
also meet jurisdictional constraints that make them palatable to a wider set of applications.
Public cloud services can be used for collaboration platforms where constituents and employees
collaborate (e.g., many Web 2.0 applications, such as blogs, wikis, podcasts and webcasts) related
application development tools and, in the future, externally managed personal data (such as
personal health records and other citizen data vaults, where services are selected by citizens
themselves), as well as public e-mail.
Public cloud services can be used for collaboration platforms where constituents and employees
collaborate (e.g., many Web 2.0 applications, such as blogs, wikis, podcasts and webcasts) related
application development tools and, in the future, externally managed personal data (such as
personal health records and other citizen data vaults, where services are selected by citizens
themselves), as well as public e-mail. The distinction between what is provided by a government-
run cloud and what is provided by one run by third parties depends on policy priorities (e.g., if
government is supposed to be a proactively enabling factor for further digital-society development).
3.0 Governance of Government Cloud Services
Because shared cloud services pose challenges similar to other kinds of shared government
services, reasons for success or failure will depend on the appropriateness of the shared-service
governance more than on the technical adequacy of the solution. On the upside, the greater service
Gartner, Inc. | G00168504 Page 7 of 13
standardization and the pay-per-use model should help set expectations across participating
agencies.
The governance arrangements for nonpublic government cloud services are unlikely to be different
from those for any other kind of government centralized or shared-service initiative. A specific
coordinating agency (such as an existing or newly appointed agency) acts as the single contact
point for client agencies that want to use shared cloud services.
In a centralized approach, the agency behaves as a pure service provider, and has specific service-
level agreements with client agencies, which do not sit on the management board.
In a truly shared approach, client agencies also participate in the governance process by sitting (or
having a representation) on the management board. Decisions concerning service levels and their
changes, investments, sourcing strategies and pricing are all subject to discussion and approval by
the shared-service management board.
4.0 Hybrid Government Cloud Services
It is clear that, going forward, the needs of government departments and agencies will be met
through a combination of different cloud models. This gives rise to the concept of hybrid cloud
services. These will range from: (1) horizontally hybrid services, where public and less-public cloud
services work together horizontally to deliver a service, or they burst from one to the other; to (2)
vertically hybrid services, where different cloud services will constitute a supply chain; to (3)
combinations of very separate services.
The first case is one that will be mostly of concern to external service providers, which will use a
combination of different models to provide the scalability, elasticity and degree of control required
by their clients. For instance, while primary storage services may be provided through an external
multitenant cloud (more of a private nature), backup information may use public cloud services to
guarantee better scalability.
The second case is one where a government organization acting as a centralized or shared
multitenant service provider may use a combination of external cloud services (ranging from private
to public) to provide services to client agencies (e.g., e-mail to different categories of employees
and stakeholders, public Web site content management services). In this case, clients would not be
responsible for interoperability and data portability.
In the third case, from a user perspective, a hybrid cloud would result from applying a selective
sourcing strategy and adopting a combination of different cloud service models. For instance,
informational Web sites could be hosted in a public cloud provided by a vendor, e-mail could be
hosted in a centralized multitenant government cloud, and agency-specific back-office applications
could run on an IT infrastructure utility provided by another vendor. The combination of these would
constitute a hybrid cloud, but responsibility for interoperability and data portability would remain
with the user agency.
Page 8 of 13 Gartner, Inc. | G00168504
5.0 Choosing a Flavor of Cloud Services
There are different elements that play a role in the choice of a particular category of cloud
computing services among those illustrated in Section 2.
On the one hand as suggested in "Private Cloud Computing: The Steppingstone to the Cloud"
private cloud services are a natural step for these services if the external offerings are still unable to
meet all client requirements e.g., in terms of scalability, elasticity or control. In particular, as we
said, government organizations need to exercise a tighter control on data location, security and
compliance requirements that may make the use of public cloud services impossible even when
they reach maturity.
On the other hand, perspectives on cloud services will be different from an individual agency as
opposed to a whole-of-government viewpoint. In fact, there is a potential tension between an
internal or shared government cloud services proposition and a combination of external cloud
services to serve the needs of an individual agency (see "Shared Services in Government: Obscured
by the Cloud?").
Let's take the case of different agencies running different e-mail systems. E-mail is clearly a
candidate to be provided as a multitenant shared government cloud service, but unless there is a
governmentwide mandate to do so individual agencies can opt for different e-mail-as-a-service
offering (external single-tenant) or even a public cloud one (depending on legal requirements on
data location, reliability and e-discovery).
Shared government cloud service providers need to establish a clear value proposition for target
agencies, unless there is a mandate for them to adopt their services. Even in this case, though, it is
important to measure value for money, as shown by many shared-service initiatives in the past.
They also need to be clear about what the benefits are that the agency is expecting, whether it is
cost savings, more flexibility, less capital-intensive investment, and so forth.
Since cloud services offerings will keep evolving for some time, IT leaders in government agencies
who are exploring how to leverage cloud computing and are comparing alternative approaches
should consider the following:

What government requirements are met by different cloud service models in areas like data
location, security, certification and accreditation, system management, and so forth?

Do all such requirements apply to all applications and data that would run on a virtualized
infrastructure?

How much control is really needed on data location (primary, secondary, actual server,
jurisdiction)?

For workloads and data for which minimum government-mandated standards and requirements
are met by different cloud service models, what is the business case for choosing either (i.e.,
costs, risks and public value benefits)?
Gartner, Inc. | G00168504 Page 9 of 13
For government agencies that are considering whether to invest in the development of cloud
services to be provided to other agencies (e.g., shared multitenant cloud services), it is important to
articulate and verify the ability to meet conditions and certification of service provisioning (scalability
and elasticity, metering, service management, security, privacy certification, and so forth) as well as
the public value (i.e., operational efficiency, constituent value and political report) both from a
whole-of-government perspective and for those agencies that are candidates to use those services.
It is important to recognize that boundaries between these different categories are going to be
constantly in motion. Any decision has to recognize that this is a moving target.
Recommended Reading
"Cloud Computing for Government Is Cloudy"
"How to Identify Cloud Computing"
"Five Refining Attributes of Public and Private Cloud Computing"
"Cloud Computing Services: A Model for Categorizing and Characterizing Capabilities Delivered
From the Cloud"
"Cloud Computing: Defining and Describing an Emerging Phenomenon"
"Economies of Scale Are the Key to Cloud Computing Benefits"
"Comparing Cloud Computing and Infrastructure Utility"
"Toolkit: How to Choose the Right Sourcing Models, Options and Locations"
"The Joint Venture Consortium Sourcing Model's Strengths, Weaknesses, Opportunities and
Threats"
"The Joint Venture Outsourcing Model's Strengths, Weaknesses, Opportunities and Threats"
Note 1
Attributes of Cloud Computing
The attributes of cloud computing, as described in "Five Refining Attributes of Public and Private
Cloud Computing" are the following:

Service-Based: Consumer concerns are abstracted from provider concerns through service
interfaces that are well-defined.

Scalable and Elastic: The service can scale capacity up or down as the consumer demands at
the speed of full automation (which may be seconds for some services and hours for others).

Shared: Services share a pool of resources to build economies of scale.

Metered by Use: Services are tracked with usage metrics to enable multiple payment models.
Page 10 of 13 Gartner, Inc. | G00168504

Uses Internet Technologies: The service is delivered using Internet identifiers, formats and
protocols.
Note 2
Alternative Government Cloud Computing Definitions
A recent request for information published by the U.S. General Services Administration provides a
different definition of private cloud services, as follows:

Private cloud. The cloud infrastructure is owned or leased by a single organization and is
operated solely for that organization. In Gartner's definition, this is an internal single-tenant
cloud.

Community cloud. The cloud infrastructure is shared by several organizations and supports a
specific community that has shared concerns (e.g., mission, security requirements, policy, and
compliance considerations). In Gartner's definition, we distinguish a centralized and a shared
multitenant cloud.

Public cloud. The cloud infrastructure is owned by an organization selling cloud services to the
general public or to a large industry group. In Gartner's definition, we distinguish also a
government-run version of public cloud services.

Hybrid cloud. The cloud infrastructure is a composition of two or more clouds (internal,
community or public) that remain unique entities but are bound together by standardized or
proprietary technology that enables data and application portability (e.g., cloud bursting). In
Gartner's view, there are two different perspectives on the hybrid cloud: a centralized/shared
cloud provider's one, and a user's one.
Note 3
IT Infrastructure Utility
Infrastructure utility introduces a greater degree of industrialization with respect to traditional
hosting and outsourcing, and thus, there is a trade-off between cost and uniqueness or
customization. The most basic infrastructure utility style is utility hosting, where traditional
dedicated hosting evolves by adding service elements like virtual servers and virtual storage to
support flexible provisioning, often still involving manual intervention for the execution. Utility
hosting providers include AT&T (Synaptic Hosting), Savvis (Virtual Intelligent Hosting) and Terremark
(Infinistructure). Most traditional outsourcers (IBM, HP/EDS, CSC, Capgemini, Atos Origin, T-
Systems and Logica) have also added this virtualized utility service to their portfolio. From a
management content perspective, the most developed infrastructure utility offerings are those that
build on basic infrastructure utility services (virtual hosting, virtual data center) and add elements
designed to support a specific application landscape, like enterprise resource planning, e-mail,
CRM and so on. The client is still in full control of application customization, while the operating
platform below is controlled and managed by the service provider, which tailors the architecture/
performance/price of the service to the application requirements (price per user, per SAPS and so
on).
Gartner, Inc. | G00168504 Page 11 of 13
Note 4
Example of Third-Party Use of Centralized Multitenant Cloud Services
For instance, a large tax and revenue agency may open access to its infrastructure or application
services to small accounting firms that provide intermediation in the tax-filing process.
Note 5 Sourcing Options for Shared Multitenant Cloud Services
Assets can be owned by one or several agencies, and some can be selectively outsourced. From
the perspective of the sourcing models adopted, the legal entity delivering the cloud services can
be a joint venture consortium (see "The Joint Venture Consortium Sourcing Model's Strengths,
Weaknesses, Opportunities and Threats"). In some cases, assets are owned and operated by an
external service provider, but government shares management responsibility with the vendor. This
has the characteristics of a public-private partnership, requires the vendors to be part of the
governance board, and from a sourcing model perspective inherits aspects associated with the
outsourcing joint venture (see "The Joint Venture Outsourcing Model's Strengths, Weaknesses,
Opportunities and Threats").
An alternative way to build a shared or centralized multitenant cloud would be for government to
buy a franchise from a public cloud service provider to get their design, practices and expertise in
cloud computing, and for government to own the assets and actually run it. The provider might
provide training and other typical functions that franchise businesses offer to franchisees.
Note 6
Example of Third-Party Use of Shared Multitenant Cloud Services
Shared multitenant cloud services could be made available to companies that receive research
grants from government to run some of their experiments or to access grant management services.
However, when membership extends beyond a well-defined set of users, we talk about public cloud
services.
More on This Topic
This is part of an in-depth collection of research. See the collection:

Roundup of Government Research, 2Q09


Page 12 of 13 Gartner, Inc. | G00168504
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