I live in Iceland and ODF isn't being used by any government institution that I know of (and I've worker in/for government quite a lot). Is it possible the NATO mandated use of ODF applies only to official NATO documents?
Then what happens in practice is that everyone just ignores that recommendation and buys proprietary software anyway, feigning compatibility with existing systems, re-training costs etc.
So in practice a government recommendation about ODF can mean absolutely nothing unless you really make it mandatory. So this map on Wikipedia is effectively useless as an indicator for "adoption". It's probably actually a map of what governments have made feel-good press releases about ODF.