Each use case and each organization is different, but there probably are some common factors that tend against the adoption of open source software by public sector organization (many of which also play a role in large private sector organizations). Here is a non-exhaustive list of possibilities:

1. Ignorance. Although there may be tech-savvy individuals somewhere in the organization, those making the decision may not be aware that open source is an option.
2. Cultural bias. These large organizations may feel more comfortable working with other large organizations, rather than with an amorphous mass of volunteer coders and maintainers.
3. Procurement process. In many cases the proposal to adopt new software will trigger a formal procurement process, which involves stating a set of requirements, soliciting competing bids from vendors, and then choosing the best bid according to a pre-defined set of criteria. This is an important check on various corrupt practices, but it works poorly with open source software, since there is no vendor to submit a bid.
4. Concerns about reliability, security, and privacy. There is a widespread perception (probably incorrect) that commerical software is safer and more reliable.
5. Concerns about support. These organizations may not have the in-house resources to configure, install and maintain all their software and keep it working smoothly. They prefer to deal with vendors who will promise to do that for them.

Some of these problems can be be alleviated by vendors who supply free software in a package with support, although this means that the free software is no longer completely free.
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