Initial project decisions begin with development of a list of the transportation problems to be addressed by a project.... The list of problems can then be transformed into a comprehensive need statement. It is critical for this statement to reflect the full range of public values identified through the public involvement process, and to legitimize all of the affected interests without appearing to favor [or promote] one particular solution. Initial project decisions begin with development of a list of the transportation problems to be addressed by a project.... The list of problems can then be transformed into a comprehensive need statement. It is critical for this statement to reflect the full range of public values identified through the public involvement process, and to legitimize all of the affected interests without appearing to favor [or promote] one particular solution.

While a problem definition can be crafted from the issues identified by the agency and the community, it is important to assure the "congruence between the agency's view of the problems to be addressed and those recognized by the community...". The absence of general endorsement of the problem definition is a strong signal that the project is not ready to proceed to the next step.

Successful execution of this problem definition step requires testing the need for the project as it has been defined by the agency, and extensive stakeholder communication. It results in a common understanding and public acceptance of the defined need.