# Buy versus Build an LLM: A Decision Framework for Governments

arXiv: https://arxiv.org/abs/2602.13033 · HTML: https://mlsanity.com/paper/2602.13033/

## Key facts

- Cited by 1 papers in the map (data through 14 Oct 2026).
- Builds on 68 of its 101 references that are in the map.
- First posted on arXiv 13 Feb 2026.

## Builds on (most cited first, 30 of 68)

- [Language Models are Few-Shot Learners](https://mlsanity.com/paper/2005.14165/) (2020)
- [An Image is Worth 16x16 Words: Transformers for Image Recognition at Scale](https://mlsanity.com/paper/2010.11929/) (2020)
- [Training language models to follow instructions with human feedback](https://mlsanity.com/paper/2203.02155/) (2022)
- [The Llama 3 Herd of Models](https://mlsanity.com/paper/2407.21783/) (2024)
- [Qwen3 Technical Report](https://mlsanity.com/paper/2505.09388/) (2025)
- [ReAct: Synergizing Reasoning and Acting in Language Models](https://mlsanity.com/paper/2210.03629/) (2022)
- [DeepSeek-R1: Incentivizing Reasoning Capability in LLMs via Reinforcement Learning](https://mlsanity.com/paper/2501.12948/) (2025)
- [Toolformer: Language Models Can Teach Themselves to Use Tools](https://mlsanity.com/paper/2302.04761/) (2023)
- [Let's Verify Step by Step](https://mlsanity.com/paper/2305.20050/) (2023)
- [Finetuned Language Models Are Zero-Shot Learners](https://mlsanity.com/paper/2109.01652/) (2021)
- [SWE-bench: Can Language Models Resolve Real-World GitHub Issues?](https://mlsanity.com/paper/2310.06770/) (2023)
- [Sigmoid Loss for Language Image Pre-Training](https://mlsanity.com/paper/2303.15343/) (2023)
- [Universal and Transferable Adversarial Attacks on Aligned Language Models](https://mlsanity.com/paper/2307.15043/) (2023)
- [Gemma 2: Improving Open Language Models at a Practical Size](https://mlsanity.com/paper/2408.00118/) (2024)
- [SentencePiece: A simple and language independent subword tokenizer and detokenizer for Neural Text Processing](https://mlsanity.com/paper/1808.06226/) (2018)
- [Conformer: Convolution-augmented Transformer for Speech Recognition](https://mlsanity.com/paper/2005.08100/) (2020)
- [Gemma 3 Technical Report](https://mlsanity.com/paper/2503.19786/) (2025)
- [Don't Stop Pretraining: Adapt Language Models to Domains and Tasks](https://mlsanity.com/paper/2004.10964/) (2020)
- [Not what you've signed up for: Compromising Real-World LLM-Integrated Applications with Indirect Prompt Injection](https://mlsanity.com/paper/2302.12173/) (2023)
- [gpt-oss-120b & gpt-oss-20b Model Card](https://mlsanity.com/paper/2508.10925/) (2025)
- [SigLIP 2: Multilingual Vision-Language Encoders with Improved Semantic Understanding, Localization, and Dense Features](https://mlsanity.com/paper/2502.14786/) (2025)
- [EVA-CLIP: Improved Training Techniques for CLIP at Scale](https://mlsanity.com/paper/2303.15389/) (2023)
- [Phi-4 Technical Report](https://mlsanity.com/paper/2412.08905/) (2024)
- [Cross-Task Generalization via Natural Language Crowdsourcing Instructions](https://mlsanity.com/paper/2104.08773/) (2021)
- [MathQA: Towards Interpretable Math Word Problem Solving with Operation-Based Formalisms](https://mlsanity.com/paper/1905.13319/) (2019)
- [Prompt Injection attack against LLM-integrated Applications](https://mlsanity.com/paper/2306.05499/) (2023)
- [The Falcon Series of Open Language Models](https://mlsanity.com/paper/2311.16867/) (2023)
- [GLM-4.5: Agentic, Reasoning, and Coding (ARC) Foundation Models](https://mlsanity.com/paper/2508.06471/) (2025)
- [Large Language Models for Software Engineering: A Systematic Literature Review](https://mlsanity.com/paper/2308.10620/) (2023)
- [Safety-Tuned LLaMAs: Lessons From Improving the Safety of Large Language Models that Follow Instructions](https://mlsanity.com/paper/2309.07875/) (2023)

## Built on by (most cited first, 1 of 1)

- [OptiMer: Optimal Distribution Vector Merging Is Better than Data Mixing for Continual Pre-Training](https://mlsanity.com/paper/2603.28858/) (2026)

## Abstract (arXiv)

Large Language Models (LLMs) represent a new frontier of digital infrastructure that can support a wide range of public-sector applications, from general purpose citizen services to specialized and sensitive state functions. When expanding AI access, governments face a set of strategic choices over whether to buy existing services, build domestic capabilities, or adopt hybrid approaches across different domains and use cases. These are critical decisions especially when leading model providers are often foreign corporations, and LLM outputs are increasingly treated as trusted inputs to public decision-making and public discourse. In practice, these decisions are not intended to mandate a single approach across all domains; instead, national AI strategies are typically pluralistic, with sovereign, commercial and open-source models coexisting to serve different purposes. Governments may rely on commercial models for non-sensitive or commodity tasks, while pursuing greater control for critical, high-risk or strategically important applications. This paper provides a strategic framework for making this decision by evaluating these options across dimensions including sovereignty, safety, cost, resource capability, cultural fit, and sustainability. Importantly, "building" does not imply that governments must act alone: domestic capabilities may be developed through public research institutions, universities, state-owned enterprises, joint ventures, or broader national ecosystems. By detailing the technical requirements and practical challenges of each pathway, this work aims to serve as a reference for policy-makers to determine whether a buy or build approach best aligns with their specific national needs and societal goals.