People have different views of the same situation. A problematic situation is viewed differently by the people affected. What may be an engineering problem for a dam builder is viewed as a cultural problem by the native inhabitants of the land to be flooded. Each group impacted by the situation defines the problem in its own terms, with each problem definition simply being a different aspect of the same phenomenon. Thus, there are no reductionistic problems, only holistic problem situations.
People disagree on what's the actual state and desired state.
What's an acceptable solution to some may be unacceptable to others. Improvements result from discussion and debate. Rather than recommending a solution to the problem to be implemented or technology to be transferred, improvements to the problem situation are made through discussion and debate by the parties involved in the problem situation. In effect, the impacted parties learn together. The analyst becomes part of the problem situation.