The stock Blue Burst Government quests rely on functionality introduced in PSO Ver.2 for Challenge mode. When you play Challenge mode, the game will use the same area multiple times in a row. In Stage 2 for example, you start in Cave 1, and then you teleport to another Cave 1, which isn't something that happens in normal quests. This is accomplished by placing the second Cave 1 on top of what would normally be Cave 2.
GameCube, Xbox, and Blue Burst allow this in both Challenge mode and regular quests, because remapping areas is a critical function of how Episode II and Episode IV work. Since the Government quests were made for Blue Burst, Sega was able to take advantage of this functionality. In 2-1:Infernal Cavern, you will play through a normal Cave 1 map, and then you'll encounter a sparkly teleporter that sends you to a second Cave 1 map.
Unfortunately, Dreamcast does not allow this outside of Challenge mode. If you try to put a second Cave 1 on top of Cave 2 in a regular quest, you'll still end up in Cave 2, rather than Cave 1. For whatever reason, Sega locked this functionality behind Challenge mode in Dreamcast, probably because nobody thought it would be useful in regular quests at the time.
Nine out of the 15 Government quests for Episode I rely on this functionality, which makes it impossible to port all of them directly to Dreamcast. As a result, nobody has ever done so. (The other six quests do generally work on Dreamcast, but that's not even half of them.)
In order to make the quests work on Dreamcast, I had to work around this limitation. As it happens, the nine quests that use the same area twice generally don't do much with the second area. Sega's general formula is that the second area has one regular room with a few monsters, then you get an ominous dark room with fixed boxes that contain supplies, and finally you get a mini Endless Nightmare room.
My solution was therefore to merge the two maps into a single map. I reserved a room in the first Cave 1/2/3, Mine 1/2, and Ruins 1/2/3 by clearing out the default enemies, and then I moved the contents of the Endless Nightmare room from the second Cave 1/2/3, Mine 1/2, and Ruins 1/2/3 into this room, so all the monsters are contained in a single area, rather than two. The PSO quest editor doesn't have support for doing this, so I had to do it manually in a hex editor, instead.
In some cases, I was able to move the displaced monsters into another room somewhere, and in other cases I ended up deleting a few monsters to make everything fit nicely. This is why I say there is some artistic license required, but overall I managed to preserve 95% of Sega's original content. This approach also has the added benefit of making the quests compatible with Ver.1, since V1 doesn't support using the same area multiple times, either.
The biggest challenge was 3-2, which you may not want to read about if you haven't played it before.
***
After you defeat all the monsters in Mine 2, you trigger a security alert and must escape the Mine within a time limit. In Blue Burst, the second half of the second Mine 2 is used as an obstacle course for this purpose, but on Dreamcast the entire Mine 2 map is used to contain the monsters you're supposed to fight, and it's not possible to have more than one Mine 2 map in the quest.
To handle this on Dreamcast, I have you teleport to Mine 1, where I designed a new obstacle course from scratch, using Sega's map as a template for how the escape sequence should play out (traps everywhere, warps that send you to unpredictable locations, switches that need pushing, etc.). This is consequently the quest where I had to take the most artistic license. Rather than merely merging two of Sega's maps together, I had to add new content to replace the elements from Sega's quest that wouldn't work.
***
As such, I see these quests as what they might have been like if Sega had made them for Dreamcast, since we'll never know for sure. If you're on GameCube or Xbox, the V3 editions of these quests are much closer to 1:1 parity with Blue Burst, but overall I think the Dreamcast versions came out quite nicely. If you ever have the opportunity to play both editions, you can let me know how well I did in adapting them for Dreamcast.
