The WHO and the 'Whose Values?' Problem: On the Partial Democratisation of Science

That science is value-dependent has been taken to raise problems for the democratic legitimacy of scientifically-informed public policy. An increasingly common solution is to propose that science itself ought to be ‘democratised.’ Of the literature aiming to provide principled means of facilitating such, most has been largely concerned with developing accounts of how public values might be identified in order to resolve scientific value-judgements. Through a case-study of the World Health Organisation’s 2009 redefinition of ‘pandemic’ in response to H1N1, this paper proposes that this emphasis might be unhelpfully pre-emptive, pending more thorough consideration of the question of whose values different varieties of epistemic risk ought to be negotiated in reference to. A choice of pandemic definition inevitably involves the consideration of a particular variety of epistemic risk, described here as ontic risk. In analogy with legislative versus judicial contexts, I argue that the democratisation of ontic risk assessments could bring inductive risk assessments within the scope of democratic control without necessitating that those inductive risk assessments be independently subject to democratic processes. This possibility is emblematic of a novel strategy for mitigating the opportunity costs that successful democratisation would incur for scientists: careful attention to the different normative stakes of different epistemic risks can provide principled grounds on which to propose that the democratisation of science need only be partial.