In fact it is best for the government (vide its various units) to cease from the development of creating even a reference distribution. A tangible distribution suffers from the obvious disadvantage of being patronized aggressively instead of focusing strictly on standards which the government desires. At a bare minimum level, what can be ideally done is figure out the RFCs that are needed to be compliant with along with the formats/standards to be supported for data storage, file storage, networking etc that will enable a number of different implementations of the standards to figure out how best to make a product out of them.