How many local government workers do you think spend their day using Gimp or Photoshop?

E-mail, basic document forms and internal applications are the major use-cases for that type of scenario.

The cost of win (desktop) licenses is virtually zero, and office subscriptions are also dirt cheap. That's not where you save money. It's a few dollars per month. You can motivate that cost even for someone who uses office apps casually once a week.