Part 1 of the paper: 
define the problem ?
What are the problematic conditions?  
What problem do they cause?

What is YOUR concern? 
What is your intended READERS’ concern? be self-aware: others  may not share your values, assumptions, wishes and fears. Think about attitudes. How do different stakeholders PERCEIVE the problem? What values are expressed in their definitions?
Who else is concerned on all sides? Think about impacts of the problem: who or what is affected by it? Is the problem local or widespread? Is it narrowly concentrated or widely distributed?
What are the key disagreements and agreements among those concerned? E.g. who do they see as authority?  Do they find government action appropriate?
Think about authority: WHO should be or can be solving the problem? Is government action a solution? Is private action a solution?