One of its purposes in its early uses was to identify the span of control of 'project management'. In some countries with less than perfect governance and managerial systems, it became an excuse for failure. Externally sourced technical assistance managers were able to say that all activities foreseen have been implemented and all required outputs produced, but because of the sub-optimal systems in the country, which are beyond the control of the project's management, the purpose(s) have not been achieved and so the goal has not been attained.