A network may have services that support common operation and services required only by certain members. Distinguishing these functions helps in economic design. Actual access and obligations depend on applicable statutes, agreements and rules, which this organizational distinction does not replace.
I propose to describe who uses the service, what capacity needs to be maintained and what resources vary with demand. An activity available to everyone may have few uses but require continuity. A specific performance can instead be programmed according to the requests received.
In a hypothetical example, an information desk for urgent needs has a different function from consulting on a new department. Evaluating both only through the number of requests can make it unreadable why resources are being maintained.
The comparison should explain criteria and consequences for the members. A useful classification remains reviewable when the service function changes. The goal is to discuss its role in the network and design a coherent capacity, without automatically deducting rights or obligations from a simple management label.