Drupal Usage in Government: A Data-Driven Study of CMS Adoption Patterns

Drupal's adoption in government websites increases with entity size, highlighting its scalability and robust features. However, Drupal's benefits—including cost-effectiveness, security, and customization—are valuable for government entities of all sizes. This study reveals an opportunity to increase Drupal adoption among smaller entities through better education and marketing. Ultimately, government decision-makers should consider current needs and future growth when selecting a CMS. Drupal offers a flexible, powerful solution that can evolve with an organization's digital requirements.

Context and Methodology

Two weeks ago we published a study at the Promet Source website analyzing government CMS usage based on levels and sizes. In that study, we found that population size affected the type of CMS governments use. We decided to test that assumption and found that smaller entities focused on using government-specialized proprietary solutions. In comparison, bigger entities moved away from them.

What we haven’t done yet is focus specifically on Drupal usage. We know that Drupal is present on all levels of State and local government, but we want to highlight in this study just how much.

For the data, we obtained from the U.S. Census Bureau:

• the top 1,000 cities/towns/villages (hereinafter referred to as cities)
• the top 1,000 counties/regions (hereinafter referred to as counties)
• All 50 States plus the District of Columbia (D.C.)

We then proceeded to divide them by population size for further analysis.

These thresholds are designed to reflect the natural distribution of populations across the United States. By setting these specific population markers, we can more accurately group the State and local governments into categories that reflect their demographic and administrative realities.

This categorization enables a more precise analysis of how different population sizes might correlate with their preference for the CMS and CMS type (open-source or proprietary).

Using this categorization, we can identify patterns that may assist government IT decision-makers in making informed decisions based on a population's size and needs.

You can find the original data along with citations in this document: [View Only] CMS Usage Across US Cities, Counties, and States

How Much Is Drupal Being Used in State and Local Governments?

Drupal adoption rates show a clear upward trend as government entity size increases. For cities, small entities start with a 5.8% adoption rate, climbing to 9.9% for mid-sized entities, and reaching 22.2% for large cities.

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Counties follow a similar pattern, with adoption rates rising from 4.6% for small counties (the lowest adoption rate) to 12% for mid-sized, and 25.9% for large counties.

States demonstrate the highest overall adoption, starting at 22.2% for small States (similar to large cities), increasing to 26.1% for mid-sized States, and peaking at 30% for large States.

Consistent Growth Across Entity Types

Drupal adoption increases significantly as entity size grows, jumping from as low as 4.6% for small entities to 30% for large ones. There are five additional insights we can garner from this data:

1. Consistent Growth Across Entity Types: All three categories (cities, counties, and States) show increasing Drupal adoption as entity size grows, suggesting a universal trend rather than an isolated phenomenon.
2. Steeper Growth Curve for Cities and Counties: The increase in adoption rate is more dramatic for cities and counties compared to States. This could indicate that Drupal becomes particularly valuable as local governments grow and face more complex website management needs.
3. Scale-Dependent Value Proposition: Connected to the previous point, the dramatic increase in adoption rates from small to large entities (e.g., 4.6% to 25.9% for counties) suggests that Drupal's benefits become more apparent and valuable as an organization's size and complexity increase.
4. High Baseline for States: Even small States start with a relatively high adoption rate at 22.2%, which is the peak for cities. This suggests that State-level websites, regardless of population size, have complex needs that Drupal is well-suited to address.
5. Potential for Further Growth: Even among large entities, Drupal adoption doesn't exceed 30%, showing significant room for increased adoption in the State and local government sector.

These trends collectively support the idea that Drupal's capabilities are well-suited to the needs of larger, more complex government entities while also highlighting its versatility.

More on this later.

Open-Source vs Proprietary CMS in Government

Let’s look at the trends for open-source vs proprietary CMS usage in government by size.

Small Entities

For small cities, 20.2% of websites use open-source CMS platforms, while 67.2% opt for proprietary solutions.

In small counties, open-source CMS adoption reaches 25.7%, with proprietary systems accounting for 48.1% of usage.

Small States show the highest open-source adoption at 38.9%, while only 5.6% use proprietary CMS platforms.

Mid-Sized Entities

Mid-sized cities show an open-source CMS adoption rate of 25.9%, while proprietary solutions account for 52.8% of usage.

For mid-sized counties, open-source platforms power 31.5% of websites, with proprietary systems used by 41.2%.

Mid-sized States lead in open-source adoption at 39.1%, while proprietary CMS platforms are used by 30.4% of these entities.

Large Entities

Large cities embrace open-source CMS platforms at a rate of 44.4%, while proprietary solutions account for 22.2% of usage.

Large counties mirror this trend exactly, with 44.4% using open-source CMS and 22.2% opting for proprietary systems.

Large states show a different pattern, with 30% adopting open-source platforms and 20% using proprietary CMS solutions.

Drupal's Open-Source Market Share

Now, let’s take a closer look at how much Drupal dominates the open-source market.

Small Entities

In small cities, Drupal commands 28.9% of the open-source CMS market share.

Small counties show a lower Drupal adoption rate, with the platform accounting for 18% of open-source CMS usage.

Small States demonstrate a strong preference for Drupal, with the platform dominating 57.1% of the open-source CMS market in this category.

Mid-Sized Entities

Among mid-sized cities, Drupal captures 38.1% of the open-source CMS market.

Mid-sized counties show a nearly identical trend, with Drupal accounting for 38.2% of open-source CMS usage.

In mid-sized States, Drupal's dominance grows significantly, commanding 66.7% of the open-source CMS market.

Large Entities

In large cities, Drupal claims half of the open-source CMS market, with a 50% share.

Large counties show an even stronger preference for Drupal, with the platform capturing 58.3% of the open-source CMS market.

Remarkably, in large States, Drupal achieves total dominance, accounting for 100% of the open-source CMS usage.

Analysis of Drupal Shares in the Open-Source Market

Looking at the data presented above, it’s clear that Drupal's dominance grows in the government sector, particularly for larger entities with more complex needs. They also suggest that as government entities grow and their digital needs evolve, they increasingly turn to Drupal as their preferred open-source CMS solution.

1. Increasing Dominance with Entity Size: Across all government levels, Drupal's market share within open-source CMS solutions grows as entity size increases. This trend suggests Drupal becomes more appealing for larger, more complex government websites.
2. State-Level Preference: States consistently show the highest Drupal adoption rates across all size categories, indicating Drupal's particular suitability for state-level government needs.
3. Convergence in Mid-Sized Entities: For mid-sized cities and counties, Drupal's market share is nearly identical (38.1% and 38.2%), suggesting similar needs and preferences at this scale.
4. Dramatic Growth in Large Entities: Drupal's market share jumps significantly for large entities across all levels, with 50% or higher adoption rates. This reinforces Drupal's strength in handling complex, high-traffic government websites.
5. Total Dominance in Large States: Drupal's 100% market share among large States indicates its unmatched capability to meet the extensive needs of large state government websites.

Why Does Drupal Make Sense for Large and Complex Government Sites?

1. Cost-Effectiveness: While initial development costs may be higher, Drupal's open-source nature offers long-term cost benefits because there are no licensing fees. This also means the government entity has the freedom to choose support providers that can work with their budget. Over time, these cost savings can be substantial for large government entities.
2. Scalability: Drupal's architecture allows it to handle high traffic volumes and complex content structures, making it ideal for large government entities. The Orange County, California case study where our team migrated 41 microsites over to Drupal to better serve over 3 million residents clearly demonstrates this capability.
3. Advanced Security: Drupal's robust security features, including regular advisories and a dedicated security team, are crucial for protecting sensitive government data.
4. Accessibility: Drupal's commitment to accessibility makes it easy for web managers of large government websites to effectively serve a diverse population.
5. Multilingual Capabilities: Drupal's built-in language modules and translation management tools are essential for diverse populations served by larger government entities.
6. Flexibility and Customizability: Drupal's flexibility and extensibility are valuable for larger entities that may need new content and content types to better reflect their information and services. Drupal has over 50,000 modules that can be maximized by government sites, making it easier to build a site they and their constituents actually need.
7. Content Governance: Drupal's powerful workflow management features, including revision tracking and custom editorial workflows, streamline content governance for large organizations with multiple departments and stakeholders.
8. Integration Capabilities: Drupal easily integrates with third-party services like GIS platforms and video hosting, allowing larger entities to create more comprehensive digital experiences.

Are the Drupal Adoption Growth Trends Also Telling a Different Story?

Going over this data again (for the third time now) and discussing the past two studies with my team, this thought hit me like a brick (thanks, Andy Kucharski!): While our data shows a clear trend of increasing Drupal adoption as entity size grows, it's important to note that Drupal's features and benefits are not exclusive to large, complex government websites.

In fact, Drupal offers valuable solutions for government entities of all sizes. The Drupal users in small to mid-sized entities know this:

• Small to mid-sized cities: 5.8% to 9.9% Drupal adoption
• Small to mid-sized counties: 4.6% to 12% Drupal adoption
• Small to mid-sized States: 22.2% to 26.1% Drupal adoption

Sure, these numbers are lower than those for large entities, but it does show that Drupal is being used by smaller government entities. This usage suggests that Drupal’s key strengths—the ones we outlined above—aren’t exclusive to what we would consider large, complex websites. They are beneficial across the spectrum of government sizes.

A smaller government organization can start with a basic Drupal site and expand its functionality as needs evolve, without having to migrate to a new platform if ever they realize they need to scale. Drupal’s scalability and flexibility, combined with its robust feature set, position it as a viable long-term solution for government websites of all sizes.

The lower adoption rates among smaller entities may be more reflective of marketing approaches and perceptions rather than Drupal's actual suitability to smaller entities. More often than not, the narrative around Drupal—whether from agencies or individual developers—emphasizes its capacity for large, complex sites, potentially discouraging smaller entities from considering it as an option.

How do we resolve this? We can:

1. Highlight Drupal's scalability and ability to grow with an organization
2. Showcase successful implementations by smaller government entities
3. Emphasize the long-term cost benefits of open-source solutions for entities with limited budgets
4. Promote Drupal distributions and starter kits that simplify initial setup for smaller organizations

Conclusion: Drupal as a Versatile, Powerful CMS for Government

While adoption rates increase with entity size, Drupal's benefits are not exclusive to large organizations. The platform's scalability, security features, and customization options make it a viable choice for government entities at all levels, from small cities to large States.

Here’s a quick summary of key findings:

1. Scalable Adoption: Drupal usage increases with entity size, indicating its ability to meet complex needs of larger organizations while remaining accessible to smaller entities.
2. Open-Source Preference: Larger government entities show a strong preference for open-source solutions, with Drupal dominating this space, especially in large States.
3. Adoption Across Levels: Drupal's adoption spans all levels of government, from cities to States, demonstrating its adaptability to various administrative needs.
4. Cost-Effective Growth: Drupal's open-source nature and scalability allow entities to start small and expand without the need for platform migration, offering long-term cost benefits.
5. Underutilized Potential: Lower adoption rates in smaller entities suggest an opportunity for better marketing and education about Drupal's benefits for organizations of all sizes.
6. Comprehensive Feature Set: Drupal's security, accessibility, multilingual capabilities, and integration options cater to diverse government website requirements.

This Study's Implications for Government Website Modernization

As government entities plan for future growth, they should consider Drupal's scalability and long-term cost benefits, particularly for budget-conscious smaller organizations. Just because a government entity serves a small population does not automatically mean they should not consider Drupal as their platform.

Governments of all sizes should leverage Drupal's customization capabilities to meet their needs. The platform's strong accessibility features align with mandates for inclusive digital services, while its robust security measures safeguard sensitive data.

However, there's a clear need to bridge the adoption gap by better educating and showcasing Drupal's benefits for smaller government entities. Addressing this issue will help government organizations make better and more informed CMS decisions, potentially leading to more efficient and citizen-centric digital services across all government levels.

A Quick Note

While this article touches on the open-source vs proprietary CMS trends in government websites, a more comprehensive analysis of this topic deserves its dedicated discussion.

In an upcoming blog post on the Promet Source website, we'll dive deeper into the factors driving CMS choices between open-source and proprietary solutions, explore the pros and cons of each approach in the government context, address common misconceptions, offer predictions for future trends, and more.

This analysis will provide valuable insights for government entities considering their CMS options, regardless of their size or current platform.

Areas for Further Research

Based on the findings and implications of this study, I see several potential areas for future research:

1. Barriers to Drupal Adoption in Smaller Entities: This research is crucial because it directly addresses the adoption gap we've identified. Understanding these barriers could help the Drupal community and government IT decision-makers develop strategies to increase adoption among smaller entities, potentially leading to more efficient and cost-effective government websites across all sizes.
2. Long-Term Cost Analysis: Cost is a critical factor in government decision-making, especially for smaller entities with limited budgets. A comprehensive, long-term cost analysis could provide concrete evidence of Drupal's cost-effectiveness, potentially influencing more government entities to consider open-source solutions.
3. User Experience Comparison: The ultimate goal of government websites is to serve citizens effectively. Comparing user satisfaction and engagement across different CMS platforms could provide valuable insights into how well Drupal meets citizen needs compared to other solutions.
4. Migration Experiences: Many government entities still use outdated or proprietary CMS platforms. Understanding their challenges in migrating to Drupal could help other governments plan their own migrations more effectively, potentially accelerating the modernization of government websites.
5. Scalability in Practice: This research area is particularly important because it directly addresses one of Drupal's key selling points—scalability. We can provide concrete, real-world evidence of how the platform performs under increasing demands by conducting in-depth case studies of government entities that have significantly grown while using Drupal.

These five areas of research are particularly important because they address key aspects of Drupal adoption and use in government: overcoming barriers, demonstrating value, ensuring citizen satisfaction, improving migration processes, and depicting growth. The insights gained from these studies could have significant practical implications for government website modernization efforts—and Drupal’s role in them.