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".