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Terms of referenceToR
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- AI Governance and UN Terminology
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Also called: ToR, mandate document.
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In five seconds
What it is
A terms of reference document sets the job, scope, roles, timeline and expected outputs for a group, project or process.
In plain words
A ToR is the written brief for a group or task. It says what the job is, who does it, what the limits are, and what should be delivered by when.
An everyday example
A group agrees to make a short film for a community event. Before recording, they write down the film’s purpose, maximum length, intended audience, deadline, available equipment and each person’s role. They also decide who approves the final cut and exclude extra tasks such as designing the event poster. That agreement does not make the film for them, but it prevents the editor from waiting for footage nobody was assigned to record and stops a short film from quietly becoming a feature.
A library brief is usually internal and fairly simple. Real terms of reference, especially in intergovernmental work, can involve formal negotiation, legal or procedural constraints, and multiple actors with different levels of authority. A ToR also does not by itself settle political disagreements; it only frames the work.
Remember thisTerms of reference turn an authorised task into an operating framework by stating what will be done, by whom, within which limits, by when and with what outputs.
Understand it
Understand it
Why it matters
If you join a meeting, working group or negotiation without clear terms of reference, people may talk past each other, expand the task without agreement, or argue later about what was promised. A good ToR helps non-specialists ask practical questions early: What is this group supposed to produce? Who is included? What is outside scope? Who approves the result? In AI governance, those questions matter because broad topics can quickly become vague, political or technically overloaded. Clear ToR improves accountability, time management and fairness in participation.
How terms of reference shape a piece of work
After viewing this, a reader should be able to explain how a need becomes an agreed work plan through a terms of reference.
01
1. Need appears
A problem, request or decision creates a task that needs structure.
Draw a box labelled 'Need' with small icons for a question mark, calendar and people.
02
2. Draft ToR
The draft sets purpose, scope, roles, timeline, outputs and reporting line.
Draw a document icon in the second box with short labelled lines: purpose, scope, roles, timeline, outputs.
03
3. Review and agree
Relevant people negotiate changes and approve the text.
Show the document passing between three figures, then a check mark once agreed.
04
4. Work follows the ToR
Meetings, research or drafting are carried out within the agreed boundaries.
Show arrows from the approved document to icons for meeting, analysis and drafting.
05
5. Deliverables and accountability
The group produces the expected outputs and can be checked against the original brief.
Show a report icon and a checklist comparing outputs with the approved ToR.
Show five connected boxes in a left-to-right sequence. Each box adds one part of the process: a need, a draft ToR, review and approval, guided work, and final outputs. Read from left to right to see how the document turns a vague task into an organised process.
On hover or tap, each step reveals one example line from a sample ToR, such as 'Output: 10-page options paper by 30 June'.
Describe this without the diagram
The diagram is a five-step sequence read from left to right. Step 1 shows that a need or request appears. Step 2 shows a draft terms of reference document listing purpose, scope, roles, timeline and outputs. Step 3 shows review and agreement by the relevant people. Step 4 shows work such as meetings, analysis and drafting being guided by the approved document. Step 5 shows final deliverables and a check against the original terms of reference. The overall message is that a terms of reference turns a broad task into an agreed process with clear boundaries and accountability.
With reduced motion: A static five-box sequence replaces any animation. Arrows connect Need, Draft ToR, Review and agree, Work follows the ToR, and Deliverables and accountability.
A terms of reference, often shortened to ToR, is a practical document that tells people what a group or task has been asked to do. It usually states the purpose, the questions to cover, who is involved, what authority they have, what they will produce, and by when. In many organisations, it is used before work starts so everyone begins with the same expectations.
What goes in? Usually a need or instruction goes in first. For example, a department may want a working group on AI procurement, or Member States may ask for a report on AI governance. Then someone drafts the ToR using the agreed objective, scope, membership, timeline, reporting line and resources.
What happens next? The draft is reviewed, negotiated and approved by the relevant people. In a UN context, that might include Member States, the Secretariat, or a bureau, depending on the process. Once agreed, it guides meetings, tasks and deliverables. Deliverables are the concrete outputs, such as a report, recommendations or draft text.
What comes out? A clearer process and fewer disputes about who should do what. A ToR does not usually create the political authority by itself. It describes how an already authorised task will be carried out. That is why it is often confused with a mandate, but they are not the same thing.
How “Making a short film” maps onto the real thing
| In the story | In the AI system |
|---|---|
| The head librarian’s brief | The terms of reference document |
| Topics, languages and shelf space | Scope and boundaries of the work |
| Who approves the final layout | Roles, authority and reporting line |
| The opening date for the display | Timeline and deliverables |
A worked example
At project inception, an evaluation officer at Headquarters is asked to establish an advisory group for a thematic evaluation before the evaluation design is circulated.
Starting from: Authorised task: advise on scope and methods, review draft deliverables, flag factual errors and report to the chief of section. The group will not approve findings or rewrite the evaluation report.
- The evaluation officer drafts terms of reference covering the objective, scope, exclusions, composition, responsibilities, decision-making method, reporting line, deliverables, timeline and review arrangements.
- Prospective members review the draft and clarify where advice ends and the evaluation office’s independent responsibility begins.
- The chief of section clears the terms of reference before invitations are issued.
- At each review point, the chair uses the terms of reference to assign comments, manage deadlines and set aside requests that fall outside scope.
- When the evaluation closes, the officer records any proposed changes for the next review of the terms of reference.
Result: The advisory group contributes relevant expertise without taking over the evaluation. Members know what they must review, when comments are due, who decides and which matters remain outside their role.
In a United Nations workplace
A communications officer in a regional bureau joins the technical evaluation of three bids for a public-information contract. The terms of reference set the assignment’s scope, required outputs, timeline, responsibilities and reporting line. The panel assesses each offer against the approved evaluation criteria, not against additional preferences discovered halfway through the file.
Clear terms of reference give bidders a common statement of the work and help the panel distinguish a substantive gap from a merely different approach. They do not replace the solicitation documents, evaluation criteria or applicable procurement procedures.
Before you try thisBid documents, vendor information, evaluators’ comments and scoring are procurement-sensitive. They must not be pasted into a public or otherwise unapproved AI tool, as disclosure could compromise confidentiality and the integrity of the evaluation. Use only approved systems and follow the panel’s confidentiality requirements.
Where you may hear it
- At a technical evaluation panel before bids are scored
- During clearance of a consultancy package
- At a project inception meeting before the workplan is cleared
- When an inter-agency working group reviews its draft mandate
Avoid confusion
Avoid confusion
Often confused with
Mandate
An authorised task or scope of work formally given to a person, group or organisation by a competent authority.
Resolution
A formal text adopted by a UN body or other assembly to record a shared position, request action or set next steps.
Normative instrument
A formally issued or adopted text that sets shared principles, expectations or guidance for behaviour, often without creating the same binding legal duties as a regulation or treaty.
Common misconceptions
Common misconception: A terms of reference is the same as a mandate.
Correction: They are related but not identical. A mandate is the authority or instruction to do something, often coming from a higher-level decision. A ToR usually describes how that authorised work will be organised and carried out in practice.
Common misconception: Once a ToR exists, the group cannot adjust its work.
Correction: A ToR can usually be revised if the relevant authority agrees. The point is not to freeze reality; it is to make changes visible and agreed rather than letting the scope drift informally.
Common misconception: Only lawyers or senior officials need to care about ToR.
Correction: Anyone involved in the work is affected by it. The ToR influences who is invited, what evidence is gathered, what outputs are expected and how success will be judged.
Quick check
Which statement best describes a terms of reference?
A ToR organises authorised work by defining its scope, roles, outputs and timing. The other options describe a resolution, a mandate and a normative instrument.
Go deeper
Go deeper
The simple version
A ToR is the written brief for a group or task. It says what the job is, who does it, what the limits are, and what should be delivered by when.
The technical version
A terms of reference is a governance and management instrument used to operationalise an authorised task or process. Typical components include objective, background, scope, exclusions, membership or composition, roles and responsibilities, decision-making method, reporting line, deliverables, timeline, resources and review arrangements. In institutional settings, it helps translate a broad instruction into an implementable framework. It is commonly used for committees, advisory bodies, evaluations, procurements, consultations and time-bound projects. The exact format varies across organisations, so the label 'ToR' does not guarantee a single standard template.
Reviewed external resources
Primary sourceGlobal Digital Compact (opens in a new tab)United Nations
This official United Nations page shows a live policy process where readers may encounter terms of reference in practice, and it suits readers following current UN digital governance work.
Intermediatelink checked 2026-07-31
Primary sourceGoverning AI for Humanity (opens in a new tab)UN Secretary-General's High-level Advisory Body on AI
This official report helps policy readers see how AI governance bodies and processes are structured, which can make terms of reference easier to recognise in context.
Intermediatelink checked 2026-07-31
EncyclopaediaTerms of reference (opens in a new tab)Wikipedia
This Wikipedia page gives a broad introductory overview of terms of reference and suits readers who want a quick orientation before reading formal documents.
Intermediatelink checked 2026-07-31
VideoVideo explanations: Terms of reference (opens in a new tab)YouTube search
This YouTube search results page helps visual learners find different video explainers on the topic, but readers should note it is a search page with mixed quality rather than one vetted source.
search results, not one pagelink checked 2026-07-31
DiscussionCommunity discussion: Terms of reference (opens in a new tab)Reddit search
This Reddit search results page lets readers see common questions and informal explanations people use, but it is a search page and suits readers who can judge community discussion critically.
search results, not one pagelink checked 2026-07-31
Where this came from
Drafted with a language model through an offline pipeline, checked against this site's schema, and every external link above fetched to see whether it answers. Treat it as a starting point and check anything that matters against the primary sources. How this site is built and what that means.
The one thing to remember
Terms of reference turn an authorised task into an operating framework by stating what will be done, by whom, within which limits, by when and with what outputs.