Absolutely yes. It's true of all organizations, but I've found that with non-profits especially, just figuring out the need you are trying to address is quite difficult.

It makes me think of all that uproar for some iPad app for the TSA that just randomly showed a left or right arrow to send tell people which line to get in. Surely easy to code. But I bet it was months or years of interviews to determine that's all they actually needed.