Terms of reference underpin every kind of inquiry, including 'committees of one.' Often, happily, some important terms are implicit by virtue of the issues raised. If, for example, a letter to staff asks, "does anyone know what happened to the staff-room coffee maker," it's clear what the inquiry is about.
But if a follow-up question is, "do you drink coffee or tea," then the inquiry has become a 'fishing expedition.' Such losses of focus are not merely unfortunate, they jeopardise natural justice and they undermine the likelihood of bringing any matter to a satisfactory and just close. Unfocused committees begin to look like Carroll's Mad Tea Party: "Why is a raven like a writing-desk?"
In 1992 the (now gone) Public Service Commission in Western Australia produced a useful document about setting terms of reference. It stayed on the WA website for "research purposes" for many years, but recently disappeared. (It has, happily, re-surfaced on a Trinidad and Tobago government site as a PDF.)
For want of a little preparation so much time and effort is wasted.▪
It pays to be obvious,
especially if you have a reputation for subtlety.
—Isaac Asimov (1920-1992)
—Isaac Asimov (1920-1992)