White papers are background reports that make a case for particular courses of action or outcomes. They are aimed at readers seeking to make decisions based on facts, contexts, and information that may not be summarized and as readily available elsewhere. They cover topics of interest to governments (particularly government policy- and decision-makers); to public-policy and other non-governmental research, advisory, and advocacy groups (such as lobbies or not-for-profit organizations); and to private enterprise (primarily managers and marketers). Some white papers also attempt to reach members of the general public who seek greater understanding of the positions adopted by government, public-policy agencies, and private enterprise.

White papers take an ostensibly objective, rather than subjective, approach. They occupy a niche that draws elements from both expository and persuasive writing. Although they make arguments, they are seldom formally rhetorical. They do not include the writing genres of narration and description.

The forms white papers take vary, but they tend to resemble think-tank publications and position papers, with greater emphasis, particularly in private enterprise, on the promotion of a product, service, or business strategy. Some white papers have the structure and length of research papers; others may appear more closely related to press releases. Length varies from a single page to 25 pages or more.

Various government departments and agencies publish white papers to lay out the central issues affecting proposed policies, regulations, and laws, or to justify positions and strategies that have already been adopted. They usually, whether by implication or design, propose action or solicit support.

The white papers that private-sector organizations produce typically vaunt the benefits of products and services, especially when these apply or showcase new technologies. They argue that a given company's products or services offer advantages for solving perceived or actual problems. By convincing prospective customers or clients that a company has a certain expertise, the white paper can be a useful complement to other corporate marketing strategies. They also furnish rationales that commercial readers can use to justify adopting the recommended course of action. The apparent factual and educational form they take, however, is intended to differentiate white papers from standard sales publications, thereby overcoming sales resistance and increasing receptivity in readers.

To be sure, white papers - particularly those that include references, sources, or bibliographies - are designed to present information, albeit in a light favorable to the authors or sponsors. But their primary function is to give readers a positive impression of authors or sponsors, to establish their expertise, credibility, and competence, and to be useful to readers in ways that build confidence, loyalty, or support among customers, users, or constituents.

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