It means the person may be bad at articulating their needs. You need to think beyond what their words say that they want, and look at what will really be of help to them. If someone comes to me and says "I need a brochure" I need to talk to them to understand what audience they are trying to reach, and what they need to say.
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Maybe a person asks for a permit to New YorkWhat that permit is all about? Is it a work permit? Or, what? Please tell me.