Review of the Normative Function of WHO
Call for Expression of Interest
The WHO Evaluation Office is initiating a review of WHO’s normative functions, to take place during
the first quarter of 2016. The purpose of this call for expression of interest is to identify an
experienced consultant to undertake this work under the guidance of the WHO Evaluation Office.
Background
Global health governance takes place in a crowded, complex, and fragmented environment. A range
of new international entities, including new hybrid partnerships and private actors, claim an
increasingly important role alongside existing traditional international organizations. While this
changing environment does not necessarily alter the basic functions carried out by international
organizations, it does require a clearer delineation of responsibilities, and an assurance that specific
roles, such as defining health-related norms and standards, are carried out efficiently and effectively,
and that they achieve their intended impact.
WHO’s Constitution, while not mentioning the term normative specifically, defines the
Organization’s primary function as acting as the “directing and co-ordinating authority on
international health work”. It then goes on to specify three types of legal instrument which can
contribute to the achievement of this objective: conventions and agreements; regulations; and
recommendations1.
Subsequently, the Eleventh General Programme of Work (2006 – 2015) lists setting norms and
standards, and promoting and monitoring their implementation as one of the six core functions of
WHO, a point reaffirmed in the current Twelfth General Programme of Work (2014 – 2019).
A key policy question raised about normative work in WHO concerns its relative priority within the
overall programme. Opinions vary as to the importance of WHO's normative functions, which
benefit countries collectively, in contrast to technical collaboration which benefits individual
countries. However, the development of clear policy in this regard is constrained by the fact that
there is currently no agreed definition as to what constitutes normative work. Furthermore, the fact
that the normative core function includes the phrase “promoting and monitoring their
implementation” implies that normative work also has a role to play as a part of WHO’s
constitutional mandate to engage in technical cooperation with Member States and further
complicates the issue.
The lack of a defining framework poses problems in explaining the role of WHO, demonstrating
resource allocation between normative and non-normative functions, delineating the different levels
of the Organisation and, indeed, defining definitive questions for evaluating the impact of normative
work as a core function of the Organisation.
1
The difference between these instruments is described in: Cassels A, Burci GL. Health. Oxford Handbook of International Organizations.
Cogan J, Hurd I, Johnstone I (Eds). OUP Forthcoming 2016. The text of this document will be made available to the selected candidate.
Objectives
The overall objective is to review the normative function at WHO and propose a clearer definition of
this function within the current context.
Methodology
Defining the boundaries: what constitutes normative work at WHO and how should it be
evaluated?
This project will focus on reviewing the normative function at WHO and developing a clear
framework to better define aspects of normative work within WHO and its boundaries.
Informal consultations with Member States, conducted as part of the current reform process,
confirmed that normative work, along with surveillance and response to epidemics and other public
health emergencies, are roles that WHO must fulfil effectively2. In addition, the normative role of
the Organization is likely to increase given WHO’s coordinating role in relation to the prevention and
control of noncommunicable diseases, and the recently adopted Sustainable Development Goals.
However, while some aspects of WHO's work (such as the framework conventions, regulations, and
technical guidelines) are normative by any definition, there are many grey areas and, indeed, several
areas that would appear to be normative (such as the negotiation of global monitoring frameworks)
that are not necessarily covered by these instruments. Several additional questions have also been
raised about what constitutes normative work. For example: are all governing body resolutions
normative, even if they prescribe actions in individual countries or for the Secretariat rather than set
norms and standards? If they are not, what criteria can help define a normative resolution? Does
normative work refer only to those instruments defined by WHO per se, or does it extend to WHO's
inputs into normative regimes managed by others (e.g. human rights, trade, environmental
agreements)? How should monitoring global health trends (e.g. World Health Statistics Report) be
treated, given that it conforms to the definition of a global public good but not to the legal definition
of being normative? To what extent should work at country level in advocating the adoption of
global norms, adapting them to national contexts, and monitoring their implementation be
subsumed under the rubric of “normative work”.
The objective of this review is to help WHO come to an understanding of these questions and
propose a pragmatic and politically acceptable framework that outlines the various aspects of
normative work. Given the recurrent policy concern as to the priority that should be given to
normative work at different levels of the Organization, the definition of normative work needs to be
framed in a way that can, at least in the future, be reflected in budgets and workplans.
The framework should take into account the full range of WHO’s normative work and should clearly
define both the boundaries and what possibly constitutes the end point for an evaluation of
normative work.
2 World
Health Organization, ‘The Future of Financing for WHO: Report of an Informal Consultation Convened by the Director-General’
(Geneva: WHO, 2010), http://www.who.int/dg/who_futurefinancing2010_en.pdf.
The final output will be a report that develops a soundly argued concise and practical framework for
categorising and evaluating normative work. The framework will propose, with practical examples,
how individual components of normative work can be most effectively evaluated. The purpose of
producing the framework during an initial phase of work is both to secure agreement on the
boundaries of normative work and, in addition, to provide an agreed agenda for future evaluative
studies.
Both qualitative and quantitative information will be used in this review. Quantitative information
may include data in relation to the dissemination of norms and standards, and WHO databases on
the implementation of norms and standards. Qualitative information may include interviews with,
and surveys of, major stakeholders, including Member States and other relevant stakeholders from
all geographic regions, sub-regions, and major language communities. Selected key WHO staff
involved in the development, support, implementation and monitoring of WHO norms and
standards should also be included.
Deliverables and Timeline
The review will be conducted from 18 January to 15 April 2016.
Composition and profile of the evaluation team
The Evaluation will be conducted by a multidisciplinary team made up of independent experts and
members of the WHO Evaluation Office (EVL), supported by an in-house reference group. A member
of the Evaluation Office will manage the process as Evaluation Manager.
Gender, equity and geographical balance will be pursued in so far as possible in the team
composition, to ensure diversity of perspectives.
WHO EVL is looking for an experienced external independent consultant to work with the Evaluation
Office to conduct this review, with the following experience, knowledge and skills:
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At least ten years of relevant experience in evaluation
Recent experience conducting evaluability assessments or designing and conducting
complex evaluations at WHO or other UN agencies
Understanding and experience of evaluating normative functions in UN and/or other
multilateral agencies an advantage
Proven communication, facilitation, and writing skills
Excellent working knowledge of English (oral and written), second UN language beneficial
Hands-on experience of collecting and analysing quantitative and qualitative data
How to apply
Interested candidates should submit their application by 8 January 2016 to evaluation@who.int with
a copy to sivasankarakurupa@who.int. Please specify “Expression of Interest – Normative Function
of WHO” in the email subject line.
The expression of interest should include:
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Cover letter and CV
Examples of recent, relevant engagements (up to 5)
Expected daily fee (exclusive of expenses)
Availability between January and April 2016
Short-listed candidates will be invited to a short telephone interview as part of the final selection
process.