||A FUNCTION might be made up of SERVICEs from many ORGANIZATIONs.
A SERVICE might appear in many FUNCTIONs.
A FUNCTION might be defined to
* bring together the SERVICES that are relevant to a COMMUNITY, and/or a PLACE;
* combine SERVICES for accounting purposes.
The United Nations provide a category list of the Functions of Government at http://unstats.un.org/unsd/cr/registry/regcst.asp?Cl=4.