more on purpose
do people pay for the council to provide services
collect the bins, maintain the parks, manage the schools
or are they paying for a group of people to work on what the area needs
housing, clean streets
or do they pay for it to work towards a more general idea of things being better, prospering, people being happy and safe
i don't know if its one or a combination of these
they might sound similar. but then imagine how activities change over time with each of these viewpoints, and they start to appear more distinct