These are almost always negation strategies rather than serious initiatives.

Sometimes yeah, but clearly not in this case, if you took the time to actually read the article.

You don't ask entire ministries and public operators to formulate a migration plan from Windows to Linux with a relatively short deadline just for negotiation purposes or just for the fun of it, you do that once you're committed to actually migrating.

This is not just a pilot project or some local administration doing an experiment, it's new country-wide policy enforced from the top, hardly a "negotiation strategy".

I don't think so. Having worked on a similar thing in my country, and the effort is monumental.

When doing this in a company, making technical people appreciate free software and making lasting changes is hard enough. When doing this with non-technical people, everything becomes exponentially harder.