Perhaps you're right that it's government agencies (I may have even skimmed over a mention confirming that?) but my assumption, especially after the author mentioned one of the "agencies" being about 500 people total, is that he's more likely talking about something like a marketing or design agency, or a talent agency, or... something.
He mentions regulation in a couple of places, including:
> the new regulations were clear: embrace Open Source solutions whenever possible.
Which certainly sounds like something at a government agency. Also the fact that there are multiple agencies talking, coordinating and sharing resources with each other. Competitive firms don't really behave like that.
