What elements should be present in a quality needs/problem statement?

The following statement is an example of circular reasoning: The need for an emergency shelter is critical in the metropolitan area. Without such a facility, the community is unable to provide shelter that is urgently needed.

Rewrite the above to correct the circular reasoning, or give an example of a well written needs/problem statement. What elements should be present in a quality needs/problem statement?

*Only needs to be a paragraph or two no format needed*

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