⁴ I first made these distinctions in 1973 in a project for the US Office of Management & Budget designed to strengthen the process of intergovernmental relations in the US. They were later published in Philip M. Burgess. "Capacity Building and the Elements of Public Management." Public Administration Review. December, 1975, pp. 705-16. Though these concepts were developed in the context of problems of leadership and management in the public sector, they apply as well to the enterprise and non-profit sectors.