# F I N D I N G S F R O M 

# 2 0 1 0 F O C U S 

# G R O U P S 

# C O N D U C T E D 

# U N D E R 

# E P A I C R # 2 4 0 2

. 0 1

O f f i c e o f W a t e r

U

. S

. E n v i r o n m e n t a l P r o t e c t i o n A g e n c y

Prepared with the assistance of

Abt Associates Inc.

January 19, 201 1

### – Page intentionally left blank

–

### Prepared by:

Elena Besedin

, Ryan Stapler

, and

Lauren Parker

Abt Associates Inc.

55 Wheeler Street Cambridge, MA 02138

For:

Erik Helm U.S. Environmental Protection Agency

Office of Water

### – Page intentionally left blank

–Abt Associates Inc., J anuary 19, 2011 Focus Group Findings i



## Introduction

T his report presents the main findings from the focus groups and cognitive interviews that were conduced as part of the design and pre

- testing of the 316(b) stated preference survey. These focus groups and cognitive interview were conducted under EPA ICR # 2 402.01 , “Willingness to Pay Survey for 316(b) Existing Facilities Cooling Water Intake Structures: Instrument, Pre

- Test, and Implementation.”

This report is organized as follows:

 Part 1: Executive Summary

– Summarizes the cumulative findings from the 201 0 focus groups and cognitive interviews

 Part 2: Findings from Focus Groups Conducted in 2010

– Presents detailed results and extensive transcript excerpts from the six focus group and a series of cognitive interviews conducted in

2010.

 Appendices A to G

– Present full documentation for all focus groups and cognitive interviews from 2010, including transcripts, survey instruments, and fact sheets. The appendices accompany this report as separate memos.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings ii



## Table of Contents

1 Executive Summary

................................ ................................ ................................ .......................... 1

1.1 Presentation of Information to Survey Respondents

................................ ................................ 3

1.2 Interpret ation of Information by Respondents

................................ ................................ ......... 6

1.3 Survey Scenario and Respondent Decision

- making

................................ ................................ 9

1.4 Budget Issues

................................ ................................ ................................ ......................... 11

1.5 Respondent Motivations

................................ ................................ ................................ ........ 12

2 Findings from Focus Groups Conducted in 2010

................................ ................................ ........ 17

2.1 Presentation of Information to Survey Respondents

................................ .............................. 19

2.2 Interpretation of Information by Respondents

................................ ................................ ....... 38

2.3 Survey Scenario and Respondent Decision

- making

................................ .............................. 50

2.4 Budget Issues

................................ ................................ ................................ ......................... 60

2.5 Respondent Motivations

................................ ................................ ................................ ........ 67

Appendix A: Documentation for Focus Group in East Providence, RI, 7/21/10

Appendix B: Documentation for Focus Group in Waltham, MA, 7/29/10

Appendix C: Documentation for Focus Group in St Louis, MO, 8/4/10

Appendix D: Documentation for Cognitive Interview s in Ea st Providence, RI, 8/12/10

Appendix E: Documentation for Focus Group in Bethesda, MD, 8/18/10

Appendix F: Documentation for Focus Group in Charlotte, NC, 9/8/10

Appendix G: Documentation for Focus Group in Philadelphia, PA, 9/23/10Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 1



## 1 Executive Summary

Th is report summarizes the main findings from six focus group s and a series of cognitive interviews that have been conducted as part of the design and pre

- testing of the 316(b) stated preference survey. These focus groups and cognitive interview were conduct ed under EPA ICR # 2402.01 , “Willingness to Pay Survey for 316(b) Existing Facilities Cooling Water Intake Structures: Instrument, Pre

- Test, and Implementation.” The focus groups an interview took place in the following locations and on these dates: 1



### 1) East P rovidence, RI, July 21, 2010

2) Waltham, MA, July 29, 2010

3) St. Louis, MO, August 4, 2010

4) East Providence, RI, August 12, 2010 [8 cognitive interviews]

5) Bethesda, MD, August 18, 2010

6) Charlotte, NC, September 8, 2010

7) Philadelphia, PA, September 23, 2010

Each foc us group was composed of eight to ten individuals that were randomly selected by the focus group facilities from panels of potential participant s maintained by each facility. Participants were eligible if they were eighteen years of age or older and if the y were not full

- time students

. Each of the focus groups included a mix of individuals with diverse socioeconomics backgrounds, based on characteristics such as income, marital status, age, rage, educ ation, occupation, and gender. Participants were

compensa ted for their participation in the focus groups. Each focus group session was one to two hours long. All sessions were audiotaped and transcribed. 2

, 3 

### Inasmuch as was possible, focus group questions followed ethnographic guidelines to avoid excessive moder ator influence on participants’ responses.

Within the focus group and cognitive interview format, the moderator first asked the participants to complete the entire survey instrument. The moderator then led a general conversation which took the group/indiv idual through a series of debriefing questions. During the debriefing sessions, the moderator asked focus group and cognitive interview participants about their reactions to the survey format and content, whether the survey questions were clear, whether th e background information presented in the survey or introductory materials was sufficient and how participants interpreted it, what went through participants’ minds when they read survey questions, and what their motivations were for responding they way th ey did to the survey. Major topics discussed are listed on the following page. For each discussion topic, we provide representative transcript excerpts that illustrate the variety of viewpoints expressed by focus group participants, as well as the general frequency with which those viewpoints were expressed.

1 In this report, we use the citation format (#X

- Z to refer to page Z of the transcript for focus group X. Citations to cognitive interviews use a similar format, (#X/Y

- Z), where Y represents the interview number.

2 Where “M:” stands for moderator and “R:” st ands for respondent.

3 Audiotapes for two cognitive interviews were inaudible and could not be transcribed.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 2 

### Topics Discussed in 2010 Focus Groups and Cognitive Interviews

1.1 Presentation of Information to Survey Respondents

................................ ................................ .... 3

1.1.1 Use of Graphics in the Survey

................................ ................................ ................................ . 3

1.1.2 Comprehension and Retention of Information

................................ ................................ ......... 3

1.1.3 Characterization of Magnitude of Fish Losses

................................ ................................ ......... 4

1.1.4 Usefulness of Introductory Material and Potential for Bias

................................ ..................... 4

1.1.5 Presentation Format for Policy Effects

................................ ................................ .................... 5

1.1.6 Characterization of Scientific Uncertainty

................................ ................................ ............... 6

1.2 Interpretati on of Information by Respondents

................................ ................................ .............. 6

1.2.1 Eggs and Larvae versus Adult Fish

................................ ................................ .......................... 6

1.2.2 Interpretation of Ecological Scores

................................ ................................ .......................... 7

1.2.3 Importance of Program Details

................................ ................................ ................................ 8

1.2.4 The Warm Glow Effect

................................ ................................ ................................ ............ 8

1.3 Survey Scenario and Respondent Decision

- making

................................ ................................ ...... 9

1.3.1 Decision Scenario

................................ ................................ ................................ .................... 9

1.3.2 Survey Realism

................................ ................................ ................................ ........................ 9

1.3.3 Hypothetical Bias

................................ ................................ ................................ ................... 10

1.3.4 Participant Confidence and Certainty

................................ ................................ .................... 10

1.3.5 Scope Tests

................................ ................................ ................................ ............................ 11

1.4 Budget Issues

................................ ................................ ................................ ................................ ... 11

1.4.1 Budget Constraints

................................ ................................ ................................ ................. 11

1.4.2 Payment V ehicle

................................ ................................ ................................ .................... 12

1.5 Respondent Motivations

................................ ................................ ................................ ................ 12

1.5.1 Motivations for Protecting Fish

................................ ................................ ............................. 12

1.5.2 Fish Losses versus Fish Populations and Ecosystem Condition

................................ ............ 13

1.5.3 Government Regulation

................................ ................................ ................................ ......... 14

1.5.4 Cause of Losses

................................ ................................ ................................ ...................... 14

1.5.5 Geographic Concerns

................................ ................................ ................................ ............. 15

1.5.6 Importance of Protecting Aquatic Ecosystems Compared to Other Issues

............................ 15Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 3



### 1.1 Presentation of Information to Survey Respondents

1.1.1 Use of Graphics in the Survey

Participants endorsed the use of graphics in the survey

.

Participants endorsed the use of graphics in the survey booklet

. Most felt that the graphi cs helped them to visualize how fish are entrained and impinged , technological solutions, facilities locations , and ecosystem

effects

. For example, some respondent s stated : “ I mean, the filter thing, where you can see X number of fish on one side and then only the little ones are getting through, it kind of tells you what’s going on ”(#1

- 5 )

, “ After reading the previous page and then reading this the picture clicked [...] I got it ” (#7

- 10 ), and “ I think it was good to visualize the problem in the graphic ” (#7

- 1 0 )

. Participants also felt that the graphics improved their understanding of these issues and tended to thin k of them as “ providing information ” (#6

- 14 ), rather than pushing them to answer a certain way. Many respondents indicated that they understood

the meaning of the graphics : “ I think they were easy to follow. It was pretty straightforward ” (#1

- 10 ) and

“ It looks clear ” (#5

- 5 )

. However, som e respondents provided feedback regarding aspects of the various graphics which they found confusing and on how they might be improved. R egarding the map showing facilities locations, a participant stated “ I was confused about the generator and manufacturer icons and exactly what’s going on ” (#7

- 10 ) . Participants’ comments during the focus groups were used to refine the graphics within the draft survey in order to improve clarity and reduce the potential for respondent

confusion. For example, the current version of the survey instrument no longer distinguishes between manufacturing and generating facilities. Overall, whe n asked participants preferred that the survey include graphics: “ Yeah, I’d rather have them ” (#5

- 5 ) and “ I like on p age 2 the graph and illustration because the adage a picture is worth a thousand words ” (#7

- 3 ). Participants’ comments also indicated that they had

little emotional reaction to the image on the cover of th e survey and that it did not influence their survey

responses: “

It’s a nice picture, but it didn’t do anything, you know, wow, spectacular ” (#4/ 5

- 3 ) , “ I noticed
it. I didn’t

– as far

– kind of gave me an idea what the topic was going to be about ” (#4/ 1

- 2), “ [...] it’s calming kind of

– it reminds if you were looking at a fish tank [...] ” (#4/ 3

- 9 ) , and “ But looking at it without knowing any of this inside, I think my impression was, it’s colorful and kind of blurry ” (#4/ 6

- 10 )

.

1.1.2 C omprehension and Retention of Information

Participants generally understood and remembered key information n ecessary to complete the survey, with some exceptions.

Despite some exceptions , most par t icipants understood and r emember information presented in the

survey. Some participants indicated that they had to re

- read some parts of the survey or refer back to the survey page which presents the definition of effects. For example, one respondent stated, “ So, I definitely

had to read those boxes a few times. It wasn’t that it was hard to understand ” (#7

- 2 ). As in any survey, a limited number of participants failed to understand or remember certain pieces of information presented in the survey booklet. One participant stated the y he felt the complexity of the information presented in the survey influenced the quality of his answers : “ I felt the complexity prevented me from giving good answers in an area that I’m very concerned about ‘cause I fish ” (#7

- 2 ). T he draft survey was rev ised throughout the course of the focus groups to reduce unnecessary complexity, remove extraneous information regarding effect definitions, and reduce the overall length of the survey in order to improve understanding and promote completion when self

- admi nistered

. Participants generally sh owed anAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 4



### understanding of the scores describing policy effects regarding commercial fish populations, fish populations (all fish), fish saved, and condition of aquatic ecosystems. Participant understanding and interpretati on of the ecological scores is discussed in Section 1.2.2

.

1.1.3 Characterization of Magnitude of Fish Losses

Participants generally felt that the survey provided useful information about f ish losses attributable to CWIS, other sour ces of mortality , and population size s

.

P articipants generally felt that the survey provided useful information about fish losses attributable to CWIS, other sources of mortality, and population size s

. Participants generally understood based on the

introd uctory material that CWIS is not the largest source of fish mortality. One participant stated he initially thought that CWIS losses are a very large problem but the statement on Page 3 that “Cooling water use is not the large cause of fish loss in most are as” “ kind of tempers it a little bit ” (#7

- 12 ). However, a few participants still indicated that the information provided in the draft survey was

insufficient for them to understand the magnitude of the CWIS losses relative to other factors : “ All this info rmation, all this research, but I mean, how many salmons to Americans e at a year, you know? I mean, I don’t know in comparison to 17,000 paddlefish ? ” (#3

- 21 ). The draft survey w as revised to include pie charts comparing young fish losses from CWIS to estim ated adult fish populations for example species. This presentation was deemed important in order to address participant comments on intermediate draft survey versions which did not specifically include examples to this effect: “ If there was like a pie char t right below that first sentence showing me the difference between what’s how much fish are lost and affected and how many are not, that probably would have affected the way I looked at [...] the rest this pamphlet ” (#7

- 11 ) and “ Like that part of it did tel l you how much [...] we could lose but it never told you

how much that we have ” (#7

- 2 ).

Also, m ost participants understood the meaning of “fish saved per year” and felt that it was less confusing

th a n potential alternatives for describing the magnitude of f ish losses . For example:

M: [...] The attribut e in the middle is described as “fish saved per year”. Would it have made a difference to you, do you think, if we had described that instead in terms of “reduction of fish losses”?

R: No.

M: No? Do you think “f

ish saved” was a reasonable way to describe it?

R: Yeah. [#5

- 15 ]



### 1.1.4 Usefulness of Introductory Material and Potential for Bias

Participants generally felt that the introductory material was useful and sufficient for them to provide meaningful responses. Most respondents felt that the introductory material did not push them to answer in a particular way.

Results from the focus groups revealed that participants’ baseline knowledge about CWIS and fish stocks was limited and mostly based on their personal experi ence . Some participants stated that they were previously unaware of some of the terms used in the survey: “ I had never heard the term forage fish. You know it was educational that there’s a lot more forage fish that there are fish that are actually caught and

consumed by humans. Whether or not it affected my answer I don’t know ” (#7

- 7 ). Participants also had little baseline knowledge r egarding the size of fish stocks, as stated by one respondent, “ I think that my perception of how many fish ar e really in an y body of water is very unclear. So you could have put downAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 5



### here that you could save 20 billion fish and I probably would have believed it [...] ” (#4/ 6

- 5 )

. Participants generally felt that the introductory material would enable them to give meaningful respon ses to the survey questions. For example, some respondents stated “ [...] it was nice to know the differentiation between commercial fish and recreational fish and the forage fish. So, that I thi nk having that information kind of influence d some of my votes I would say ” (#7

- 10 ) , and “ I just don’t know enough about it, I guess coming into it, but I felt like it

– I mean it was pretty straightforward ” (#4/ 5

- 2)

. Some participants though t that the draft survey did not provide enough information, as one participant stated, “ Like that part of it did tell you how much [...] we could lose but it never told you how much that we have ” (#7

- 2 ). Generally participants indicated that this additional information probably would not have influenced their vote in the choice questi ons . As stated by one participant , “ I probably would have made the same decision, but it would have been nice to know exactly what the difference between 48 and 53 would have been ” (#5

- 17 ). The draft survey was revised to include additional information add ressing many of the participant comments and concerns. Additional discussion of participant confidence and certainty is provided in Section 1.3.4

. Many respondents felt that the introductory material provided objective informat ion, rather than feeling that the information included in the survey pushed them to respond a certain way. For example, when asked about potential bias some respondents stated “ No, I didn’t think so ” (#5

- 14 ) and “ Only if by biased meaning that there’s miss ing information that could help us in that sense perhaps again. Other than that,

no ” (#5

- 14 ). H owever s ome participants expressed a general concern that the introductory material may

not be objective or may be biased mainly because it did not provide enoug h information. As s ome participants stated , “

I mean, opinions are like belly buttons, everyone’s got one, so how one

- sided is all this information? I always am kind of cynical in my thinking, what is the other perspective ? ” (#2

- 3 )

, “I think the presentatio n is biasing the answer ” (#5

- 14 ) . Some other participants described what they perceived as a bias in the other direction: “ I knew that I wanted to vote because of ho w important the fish are in the ecosystem. [...] I felt like it was pushing you in one direct ion or another according to what percentage of the population you’re going to save overall. It was biased in that respect ” (#6

- 4 ), “ The first sentence is a bit skewed. [...] The cause

– cooling water use is not the largest cause of fish loss in most. It

kind of basically it’s saying, hey, it’s not so bad. There’s other things that are doing it, as well, so you

know ” (#7

- 11 ). S ome other participants also indicated that any perceived bias did no t influence the way they answered the choice questions.

1.1.5 Presentatio

n Format for Policy Effects

Most participants int erpret ed the f ish losses scales correctly and generall y felt that the presentation of policy information was clear within the choice questions. Furthermore, participants generally endorsed the use of pe rcen tages to describe ecological effects.

Focus groups showed that most respondents correctly interpreted the scales of the ecological scores. For example, on e participant stated “ [...] I think the percentages really, to me, really help ed me ” (#4/ 5

- 11 ). In

init ial draft versions of the survey, a few participants were confused about the meaning of a maximum

scores pres ented in the choice questions

. The draft survey was revised to include additional reminders within the choice questions regarding the maximum score under each effect along with its meaning (e.g., “100% is populations without human influence”)

. Another revision based on focus group results included

additional emphasi s regarding how scores would be used in the remainder of the survey as stated on Page

7 : “ The next part of the survey will ask you to consider different types of policies protect fish, and indicate how you would vote. Effects on each possible policy will be described using the following scores .” Participants clearly understood that t he valu es presented under the “No P olicy” option represented the

current situation and that the marginal effect of a policy was the difference between values presentedAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 6



### under “No Policy” and Option A or Option B. Additional discussion of the scores used to describ e policy effects is presented in Section 1.2.2

.

1.1.6 Characterization of Scientific Uncertainty

Participants understood that the ecological changes described in the survey were uncertain, and most were comfortable making decisions in the presence of this uncertainty.

Participants understood that the ecological changes described in the survey were uncertain, and most participants were comfortable making decisions in the presence of this uncertainty. The ir responses indicated that th ey understood this uncertain ty based on the information presented in the introductory

material and considered it when evaluating policy options. For example, o ne participant referr ed to Page

4

, which addresses scientific uncertainty as

, “ That one kind of t he disclaimer page ” (# 7

- 19 ) . Some participants also expressed that they weren’t surprised at this uncertainty, with statements such as “ I wasn’t surprised at that ” (#4/ 4

- 7 ). Multiple participants expressed that they perceived the values as a “best guess”: “ My guess is that it did come from studies but I have a healthy dose of skepticism about the accuracy of it. I don’t think it’s been in any way skewed purposefully, but I know that this is a best guess, reasonable guess perhaps ” (#5

- 10 ), “ it shows me that they are being honest for the most part. You know, you can't obviously be accurate on everything, but this is a kind of a best guess ” (#4/ 1

- 3 ), “[...] They had more numbers on the commercial fish population. The rest was more of a guesstimate ” (#5

- 15 ), and “ you don’t know the exact number and nobody knows ” (#4/ 3

- 4 ). Overall, participants felt comfortable making decisions in the presence of uncertainty, but some participants had differing opinions on how it impacted

their choices: “ No it didn’t

– it didn’t eit her way ” (#4/ 4

- 7 ) and “ I’m assuming if you’re a scientist and you are doing studies, I’m taking you at your word. I still don’t think that anyone’s capable of complete accuracy in this ma t ter

– I guess it did affect my answers because I think that taking t hem that they can do it pretty decently ” (#4/ 5

- 3 )

.

1.2 Interpretation of Information by Respondents

1.2.1 Eggs and Larvae v ersus Adult Fish

Participants generally understood that CWIS primary affects “young fish” which may eventually develop

into adult fish.

Part icipants generally understood that CWIS primary affects “young fish” which may eventually develop into adult fish. Many participa nts stated that the graphic on P age 2 of the survey (“How Fish are Affected by Water Intake”) helped them understand how CWIS i mpacts fish and how it differentially affects eggs, juvenile, and adult fish : “ I was thinking more fish is going to get through the screen if they’re smaller. The smaller, the more eggs and the more fish you’re going to lose ” (#6

- 8 ). The draft survey was a lso revised to further clarify the graphic with arrows link ing it to supporting text . As said by a participant, “ I like the arrows. Large fish are easier to kill. The arrow points to a larger adult fish. Juvenile fish and eggs it points to juvenile fish an d eggs ” (#7

- 10 ). Many participants showed an understanding of the meaning of “young fish” and the relationship between young fish and adult fish. One stated, “ [...] s t ill young eggs and fish are important too [...], but an egg is an egg which grows to an adult .” (#3

- 21 )

, and another described juvenile fish as “ the kids ” (# 6

- 8 ). Some respondents expressed confusion about the specific definition of young fish, as stated by one participant “ What does that mean to be a young fish? What is the criteria for young fis h is one of the questions I had ” (#4/ 1

- 5 ). C omments by some participantsAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 7



### also revealed that they may have been somewhat confused about what “young fish” includes: “ One thing that it never addresses and I was kind of wondering about, it addresses small fish but never eggs ” (#5

- 3 ). However, it generally appears that any such confusion did not prevent respondents from being confident in their selections in choice questions.

1.2.2 Interpretation of Ecological Scores

Participants generally understood the meaning of t he ecological scores and diff erences between ecological

scores.

Participants generally understood the meaning of the ecological scores and differe nces between ecological

scores. Multiple respondents commented on the complexity of the scores, but few er res pondents indicated that the complexity prevented them from understanding the scores or from providing meaningful responses. As stated by one participant, “ [...] I definitely had to read those boxes a few times. It wasn’t

that it was hard to understand. It wa s just like you said it was a little maybe more complex the way it was

written out .” (#7

- 2 ). The draft survey was revised to reduce the detail regarding the ecological s cores to prevent respondents fro m being confused or overwhelmed. With this information excluded, participants still appeared to understand the concept being addressed: “ I personally though t everything from pollution to fish to everything. It’s an ecosystem. Literally comprises everything as a whole ” (#5

- 8 ). This revision also reduces the pot ential for participants to focus on measures within the aquatic ecosystem score which are not affected by the policy options presented in the choice questions (e.g., fish tissue contamination). A

few participants suggested the “ commercial fish sustainabili ty ” score used in the initial draft survey may be confusing: “ The commercial fish t hing is a little bit confusing [...] commercial fishing sustainability score, that’s

– I was reading through that a couple of times ” (#1

- 14 ). The draft survey was revised to

d escribe commercial fishing impacts in terms of a “commercial fish populations” and par ticipants generally understood the difference between “commercial fish population” and “fish populations (all fish)”: “ [...] specifically the fish that are more generally u sed as food for people ve r sus some of these other fish that are just fish [...] ” (#2

- 5 ). See Section 1.1.3 for additional discussion specific to the “fish saved per year” score.

Participant s indicated that it was useful to have t he effects specified separat ely within the choice questions: “ The fact that you gave the statistics for both types influenced my answers. If you said fish in general, I might answer a different way ” (#7

- 12 ). Many p articipants expressed preferences among th e effects, while others said they considered all effects: “ For me, it was just the cost, the condition of aquatic ecosystem, and the f

ish saved per year. That’s all I looked at ” ( #5

- 8 ), “ For me, it was conditions of aquatic ecosystem which was primary

– No t so much as how much is there, but the ecosystem ” (#5

- 6 ),

and “ [...] I read all of them and all of it was taken into consideration ” (#4/ 6

- 2 ). Some other respondents focused on the effect exhibiting the largest ch anges under the policy options: “ I think the most striking thing on the page, or option , was

– or statistic, was the 50% and the 1.4 billion fish saved. So, that alone helped with my decision. Then looking down, some of them are not as much as of a difference. But I’m all for trying to save as many as we can .” (#4/ 6

- 2 )

, “ I went with B because I saw that was a higher percentage fish saved ” (#1

- 11 )

, and “ [...] when I compared A and B, they’re virtually the same statistics except on fish saved per year, where there were a lot more fish saved. It’s like, h ey, for twelve more dollars a year saves 0.3 billion more fish? So, I selected Option B ” (#5

- 6 ). The draft survey was revised, changing the order in which ecological effects were pre sented in the choice questions in order to reduce the potential for partic ipants to focus excessively on the “fish saved per year” score when c hoosing between policy options or to suggest that it is more important than other scores.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 8



### Participants generally appeared to have some understanding of how the ecological scores interact and this influenced their responses. As stated by one participant regarding the “fish saved” score in comparison to other ecological scores, “ many of those will die anyway because they’ll be eaten by others, so again, I am not so concerned with that fish s aved per year ” (#4/ 2

- 4 ) and “ Fish are only part of it, this ecosystem ” (#3

- 11 ). Participants generally understood that not all effects will necessarily improve with an increase in
“fish saved per year” : [...] it was saying, saving more fish does not necessar ily mean that all the effects will improve. That swayed me a little ” (#6

- 2 ). Some participants’ responses indicated that the choice questions would have been more difficult if some effects were to go up and other s down within the same policy option. Some o thers indicated that they still could have answered the questions: “ I don’t think it would have been more confusing. It would have made me think more about my answer because I would have had to really weigh the different things ” (#5

- 13 ).

1.2.3 Importance of Prog ram Details

Participant understanding of program details based on the survey was sufficient for them to provide meaningful responses to the choice questions.

Participant understanding of program details based on the survey was sufficient for them to prov ide meaningful responses to the choice questions. Many participants expressed that graphics and charts within the survey were helpful for illustrating differences between technologies and potential policy programs. Generally responses from participants ind icate d that they understood that policy options would include a combination of closed cycle and filters: “ I assumed it would be a combination of the two ” (#5

- 13 ) , and

“ Like each time I read when I went to q uestion 5, I had in mind this is a different set o f cooling and filters. So, you know that in the back of my mind also when I was looking at the numbers ” (#7

- 6 ). Some other participants indicated that they would have liked to have been provided more detail regarding the

combination of technologies that wo uld be applied under policy options, with comments such as, “[...] it’s very vague. These options require a different mix of technologies in different areas. It doesn’t really address how they’re different ” (#5

- 12 ) with one participant stating, “ [if the surve y] had actually addressed the technologies more in the introduction, I think then if they include them later on that could definitely affect how I would have picked ” (#5

- 13 ). The draft survey was revised based on participant feedback to clarify that new po licies could use a combination of closed cycle and advanced filters. Overall, feedback from participants indicated that these details might allow they to make a slightly more informed decision but are unlikely to affect their policy choices : “ [...] being so mebody that didn’t have to look for an extended amount of time, I don’t think that would matter ” (#4/ 6

- 8 ), and “ A slightly more informed

answer ” (#7

- 6 ).

1.2.4 The Warm Glow Effect

Most participants answer ed the choice questions based on the effects discussed in the survey, not on a desire to help the environment in general.

Many participants indicated that while they were concerned about the environment in general, their answers were based on the specific effects presented in the survey. Comments from some part icipants that their policy choices were based primarily on “fish saved per year” suggest that they felt fish were worth saving for their own sake to some degree. While p articipants ’ responses indicated that they consider increasing the “fish saved per year ” score to be a good thing but they generally did not express a strongAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 9



### response to fish losses specifically with one participant stating, “ I’d like to say it is pretty difficult to become emotional with fish ” (#3

- 11 ). However, a few participants stated th at while they were making

decision s based on the effects p resented within the survey, their choices were based at least partially on a desire to help the environment in general. For example:

M: [...] W ere the specific effects important to you when you were a nswering? Or were you answering just because maybe you want do your part or do the right thing or something like that?
R: For me it was both. I did a cost benefit on each one. Should I spend that much a year for this marginal
im provement? It was really bot h. [ #5

- 11 ]

. 

### Some participants indicated that it was difficult to choose the status quo after readin g the introductory

information and s ome others indicated that they thought that “they could do a thing” given the relatively

low household cost. A few respon dents indicated that they were inclined to support environmental causes and would like “to do a good thing” but still considered the cost and effects under the policy options. For example, one respondent stated, “ [...] if we can do something to help as long as the price is right, then do

it” (# 7

- 16 ) and “

I feel if it’s going to benefit everyone and be better for the economy, I’m O K with paying

a little bit more ” (#1

- 12 )

.

1.3 Survey Scenario and Respondent Decision

- making

1.3.1 Decision Scenario

Respondent s understood the choice task correctly and generally believed that the survey decision scenario

was clear.

Participants understood the choice task correctly and generally believed that the survey decision scenario

was clear. Most indicated that they followed the surv ey’s instruction to evaluate each policy question on

its own and did not compa re policy options across pages . A small minority of participants stated that they did look page across the choice questions when completing the partici pants looked back across pa ges but these participants generally indicated that this was to help them better understand . As stated by one participant, “

I did look back, not to compare, but I did look back just to see how I answered [...] to make sure that I’m thinking about this right and being consistent. So I don’t know that I compared, I just

wanted to make

– I think it helped me understand ” (#3

- 7 ). When probed it was clear that they were answering the choice questions on their own. For example:

M:

- or were you looking at it in refe rence to other questions, and kind of answering them as a group?
R: No, on it’s own.

R: On it’s own.
R: On it’s own. [ #3

- 7 ]



### 1.3.2 Survey Realism

Participants were generally willing to accept the information presented in the survey at face value

.

Participants w ere generally willing to accept the information presented in the survey at face value. There were some objections regarding the info rmation presented in the survey, and f or the most part these objections were related to a perceiv ed insufficiency of informa tion. An objection was raised in early focus groups regarding the basis for values presented in the survey and why it did not list specific information

sources: “ You have to list your sources, like ‘Where did you get these numbers from?’ ”(# 2

- 10 ). WhileAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 10



### par ticipants generally suspected the numbers were based on government data

, some respondents expressed that listing sources would add “ some degree of credibility to it, rather than just and arbitrary number [...] ” (#2

- 10 )

. A statement listing organizations whic h contributed data was added to Page 1 and this appeared to resolve much of these concerns. A cognitive interview participant also described how

differences in the level of effects could possibl y influence his perception of realism : “ [...] if they were

more dramatic, perhaps it might have, you know, made me look a little harde r [...] maybe I would have been even more skeptical. I’m not sure ” (#4/2

- 2 )

. Overall though , participants appear ed to approach the numbers and consider them as if they were real when choos ing between policy options.

1.3.3 Hypothetical Bias

Participants took the survey questions seriously, indicating that hypothetical bias may not be a significant design issue for this survey.

Participants took the survey questions seriously and indicated that t hey though t that their choices would actually influence policy. They thought that their responses would be used by the government to make policy decisions

, as one participant referenced back to the survey text, “ It says here that your answer will help the government decide which policies will be enacted, unless that’s a lie ” (# 6

- 11 ). Some took the mere development of the survey as an indication that the government would be using their input to make policy decision s and that their response was important

, “ Or they wouldn’t be doing this survey ” (#6

- 11 ). Many participants were confident when asked whether their choices would be different if the y knew the

vote was binding

. For example, one participant stated that “ No. It would have been the same actually ” (#4/ 1

- 11 ). Some participants expressed mixed impressions of why EPA had developed the survey and

how their responses would be used for decision making : “ I just assumed EPA is trying to see how many allies they have ” (#6

- 12 ) , and “ [to see] Who would vote in their favor before they go to wherever they need to go ” ( #6

- 12 ). Overall, participants thought that their votes were important. Participants also indicated that they th ought of the “cost line” in the choice questions as real costs that they household may

have t o pay if the policy option was enacted. See Section 1.4.1 for discussion of focus group results related to budget constraints.

1.3.4 Participant Confidence and Certainty

Participants generally felt comfortable with their answers bas ed on the inf ormation provided in the survey, but some expressed uncertainty.

Some participants felt very certain about their answers. For example, participants made statements such

as: “ Yeah, I’m pretty much confident ” (#3

- 8 ), and “ If I believed that it was gonna affect regulations, I

think I would have voted the same exact way .”(#7

- 9 ). Some others express ed confidence but thought that additional information might improve their confidence or impact their choices. For example some respondents stated: “ To b e really more confident, I would need more information [...] ” (#5

- 3 ), and “ [...] based on what I had I feel confident. If I would be provided more information maybe my answers would be different ” (#3

- 8 ). A few participants indicated that a specific piece of i nformation might improve their confidence, for example: “ And I’d want to know if there are any job losses related to this ” (#5

- 3 ). Th e vast majority indicated that they were neutral or confident in their responses to Question 8, with those

lack ing confiden ce as a small minority. Among participants indicating a lack of confidence, a lack of information was typically cited as the primary reason rather than confusion regarding the survey format orAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 11



### decision scenarios: “

I didn’t feel like I was pushed a certain way, but I wasn’t confident in my answers. I just answered the best that I thought that I could in the information that was given. If I had taken a test, I feel like I would fail ” (#6

- 4 ). Another participant stated that he felt “ Uninformed ” (#1

- 5 ). When as ked,

m any participants tended to agree that they would vote the same way if in a “voting booth” or if questions were part of a refe rendum. A few participants agreed but caveated their response somewhat: “ Yes, but I would hope that I have done a lot more re search beforehand to answer those questions that I had ” (#5

- 9 ).

1.3.5 Scope Tests

Participants’ responses provide some evidence that the utility participants gain from saving fish inc reases when more fish are saved, but at a declining rate.

Participants’ respo nses provide some evidence that the utility participants gain from saving fish inc reases when more fish are saved, but at a declining rate. M any participants indicated that they would be willing to pay more money to save add itional fish, as stated by one p articipant, “[...] when I compared A and B, they’re virtually the same statistics except on fish saved per year, where there were a lot more fish saved. It’s like, hey, for twelve more dollars a year saves 0.3 billion more fish? So, I selected Option B ” (#5

- 6 ). However, some participants who were willing to pay some money to avert some fish losses (Option A) were not willing to pay additional money to avert additional losses (Option B). Some valued increases in fish saved but were unwilling to bear greater co st without significant increases in other ecological effects:

“ I have to admit, I voted generally for the higher plan until we go to q uestion 6, where the condition of the ecosystem didn’t change ” ( # 5

- 11 ). While another participant stated this was because he would rather
get some improvement while saving some money: “[...] yes, it’s saving 50% more fish. But at the same time we don’t know the other effects of this policy. So I went with the safer route in terms of saving a little bit of money but also still i mproving the problem ” (#7

- 5 ).

1.4 Budget Issues

1.4.1 Budget Con

s traints

Participants considered budget constraints when they evaluated how much they were willing for policy options.

Most participants considered their budget when choosing between specific policy optio ns. For example

, some of them stated “ So, I don’t go out to eat twice (#5

- 12 )”, “ [...] if I was working at my old job making the money that I was making, I would probably have chose a higher amount ” (#4/ 5

- 12 ) , and “ the cost per month came out to only $3 per month, which I feel is very affordable ” (#2

- 6 ) . Some participants stated

that household cost was the most imp ortant factor in their decision : “ Yeah. Absolutely ” (#4/ 4

- 8 ). Even though some respondents stated that they did not focus on the cost of the p roposed policy option, their comments and responses to follow

- up questions generally revealed that they simply didn’t view the

household cost amounts under the policy options as significant relative to their personal budget

constraints : “ [...] $2 per month d oesn’t seem like a whole lot of money. So, you almost feel guilty like 2 bucks a month, I’ll save some fish ” (#7

- 4 ). Another participant indicated that household cost wasn’t his primary focus when choosing between policies because of the importance of the issue: “ [...] I think it ’ s

super

- important. So if it’s something that’s going to affect my kid’s kids down the line or something like that, then that’s something that I could buy into and invest being passionate about that” (#4/ 6

- 3 ). Some participants indica ted that they would have to think harder about budget trade

- off s if the amounts wereAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 12



### higher. For example, one respondent stated, “ If you put a zero behind one of the numbers, I’d have to think about it very harder than, you know, 24 dollars a year” (#5

- 12 )

. Others indicated that they were evaluating the cost effectiveness of options based on changes in the ecological scores. For example, one participant stated “ Why would we pay a dollar more per month with no changes affect ing three of the four categories [ ...] why are we regulating people to pay more for no improvement? ” (# 2

- 14 ). The presentation of household cost in terms of both monthly and annual amounts appeared to help respo ndents to realistically compare increases to their household budget, with some ch oosing to focus on monthly

amounts and others on annual cost. Overall

, participants approach ed the questions as if the household cost

amounts would act ually come out of their pocket . As one respondent stated, that if he knew costs were binding, “ No. [my vo te] would have been the same actually ” (#4/ 1

- 11 )

.

1.4.2 Payment Vehicle

Participants generally accepted the payment vehicle of increased household cost , although their interpretations of these costs varied for early draft survey versions

.

Participants understo od that selecting Options A or B would result in incr eased costs to their household. They generally understood that costs to industry would be passed on to consumers, with one participant stating, “ So my thought process is that the household stuff is being passed down to consumers from the cost of the added regulation they have ” (#3

- 4 ). Some participants that received early draft survey versions expressed confusion regarding how the se costs would be manifested: “ Cost per household

– is that only

relate to t he purchase or consumption of fish and seafood? Or is that going to be a consumer cost or a

tax? ” (#3

- 3 ) , and “

Are we the only ones that our taxes are going to go up [...] ” (#6

- 8 ). T he draft survey was revised to improve clarity regarding how these costs wou ld be passed to consumers by adding a clause on P age 1 stating that goods and services with costs would include “electricity and common household products”. The de finition of “cost per year” on P age 7 was also revised to include “services” purchased by con sumers. These revisions appeared to reduce the potential for respondent confusion when evaluating policy options.

A few respondents expressed that companies should be bearing the costs, rather than consumers. For example, a participant stated, “ Instead of passing these charges to us, why aren’t they passing them to these companies [...] that are responsible ” (#2

- 4 ). However, there was a general understanding among most participants that “ [...] ultimately it’s all us consumers that ultimately pay for everything ” (#2

- 4 ). Also, o nly one participant indicated in Question 7 that this issue was the reason for selecting “ No P olicy ” for all choice questions.

1.5 Respondent Motivations

1.5.1 Motivations for Protecting Fish

Participants cited a variety of motivations for reducing fish mortality, including motivations associated

with use and non

- use values.

Participants cited a variety of reasons for wanting to protect fish. Some participant s indicated that they wanted improvements in effects either for sake of employment or becau se of their own consumption

. For example, participants stated, “ I care because I like to eat it ” (#3

- 11 ), “ And also you have to look at the employment factor. This industry employs a lot of people, and if you start losing fish population, you’reAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 13



### going to l ose a lot more jobs ” (#2

- 13 ). Some participants wa nt ed to maintain recreational opportunities:

“ [...] and the recreational chain, too. I mean, my husband’s an avid fisherman ” (#2

- 5 ), “ thinking back on when you were a child [...] those are fond memories, and yo u take fish away and that goes away too ” (# 2

- 5 ), and “ [...] you know, I love snorkeling, and I l ove being outdoors especially. I'm a beach guy so that plays heavily in to my influence. I don't think we do enough for our ecosystems [...] ” (#4/ 1

- 4 )

.
Some other pa

rticipants indicated that they were interested in the role that fish losses and the policy options play within the environment rather than consumptive uses

. For example, participants stated, “ I’m

not a fisherman, [...] And I’m not a big seafood eater. [...] bu t the environment is more of what I was kind of interested in ” (#4 /5

- 9 ) and “[...] my whole focus was the industrial northeast rivers and streams ” (#7

- 18 ). A number of participants indicated that they wanted to preserve fish pop ulations for future generation s. For example:

M: Why is it important to you to support a program like that? What’s going through your head?
R: The sustainability of life was going through my head. I have children. Thinking of my children. Thinking about what kind of world they’re gonna have. And you know from there their kids and just everybody in general. [#7

- 14 ] 

### Most participants cared equally about fresh and saltwater fish or considered this distinction as of little importance w hen choosing between policy options. Regarding the impor tance of saltwater versus freshwater fish, p articipants gave responses such as: “ To me it made no difference because the waterways

are interrelated ” (#7

- 19 ), “ More freshwater fish tha n saltwater fish, I would think so ” (#5

- 17 ), “ Honestly, even just lookin g at it, I was looking at it as we’re going to save a fish ” (#6

- 6 ), and “ I t didn’t even occur to me about the ocean and fresh vs. salt water ” (#7

- 18 ).

Some participants also indicated that they were motivated by concerns regarding household costs and the

st ate of the economy: “ the rest of them, reducing my cost, is very important ” (#1

- 6 ) and “ the way the economy’s going and everything, I think it’s important to maintain industries. Even though you’re going to save ecology, everything else is going to go down the tubes. [...] So that’s important to me ” (#1

- 3 ).

1.5.2 Fish Losses versus Fish Population s and Ecosystem Condition

P articipants’ statements implied different opinions about the importance of preventing fish losses versus increasing fish population or improvin g the condition of aquatic ecosystems.

Participants’ choices and statements implied different opinions about whether changes in fish mortality were of importance without large increases in the long

- term f ish population or the condition of aquatic
ecosyste ms. Some participants stated that they chose a policy option because of the difference in fish saved, “ I went with B because I saw that was a higher percentage fish saved ” (#1

- 11 )

. Comments from

some of these participants indicate that they want to avoid l osses because they p lace some value on fish in their own right : “ [...] looking down, some of them are not as much of a difference. But I’m all for trying

to save as many as we can ” (#4/ 6

- 2 ). Some other participants indicated that effects on populations or

ec osystem condition were most important, and that they felt uncomfortable spending money to prevent fish mortality if there was uncertainty in whether it would improve these effects: “ I have to admit, I voted generally for the h igher plan until we go to q ues tion 6, where the condition of the ecosystem didn’t change ” (# 5

- 11 ), and “ But see everything else follows the conditions of aquatic ecosystem. [...] the commercial fish population hinges upon the condition of aquatic ecosystem, as does the fish population [... ] ” (#3

- 15 ). Generally participants understood that in most cases the amount of fish saved is small

relative to the total fish population. For example:Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 14 M: When you look at that fish saved per year, how did you think about that in terms of all the fish out t here
in the water?
R: I guess probably a pretty small part [#6

- 7 ].



### 1.5.3 Government Regulation

A limited number of participants expressed general concern regarding more or less government regulation, but these concerns did not prevent participants from providin g meaningful responses to choice questions.

A limited number of partici pants expressed general concern regarding more or less government regulation, but these concerns did not prevent participants from providing meaningful responses to choice questions. S ome participants indicated that they were concerned about additional government regulations or the ability of the gove rnment to regulate effectively , providing comments such as : “ You asked if there were cons, negative, and other than price, there really wa s one in my mined, and that is government, which is getting bigger and bigger and bigger, and I’m very much in favor of smaller government, so that clearly was an issue as I was reading this ” (#2

- 15 ), “ I think there’s a basic distrust of government agencie s ” (#5

- 9 ) , “

I’m tired of spending money on government stuff myself, you know. Every time you turn around, they want more ” (#3

- 11 ) , and “ [...] I don’t have a lot of faith in the government about anything ” (#4/ 2

- 3 ) . However, these concerns were typically gener al and not tied to specific aspects of the policy options presented in the survey

. Question 1 of the draft survey was revised based on participant feedback in order to eliminate confusion regarding its meaning or the purposes of inquiring about respondent preferences regarding government regulation. Only one participant among all seven focus group sessions selected “I don’t trust government to fix the problem” in Question 7 as the reason for choosing “No P olicy” for choice questions. This suggests that part icipants’ general preferences regarding government regulation are unlikely to result in a large number of protest responses . While respondents may have preferences for more or less government regulation (as addressed in Question 1 of the current

draft surv ey), focus group results suggest that these preferences would not prevent respondents from providing meaningful responses to the choice questions.

1.5.4 Cause of Losses

Some participants considered fish losses caused by humans to be more important than losses attributable to natural causes, while some other had mixed opinions about whether it is more important.

For some participants, the specific cause of losses was important, as said by one participant: “ Specific cause is the issue that comes [...] in my opinio n ” (# 3

- 19 ). And some participants indicated that fish losses by human act ivities were more important than fish losses attributable to natural causes

, mainly because

man

- made losses can be changed: “ There’s nothing we can do about natural causes. There is s omething we can do about the opposite ” (#3

- 19 )

, and “ I mean, we know what the problem is, [...]. It can be fixed. I just costs money do it. And who’s going to pay for it? ” (#3

- 19 ). Anothe r respondent’s comment suggested that it is important because of the re levance to the policies evaluated in the survey: “ I think it would have been addressed in the very beginning if it wasn’t important . I mean, it just would’ve not addressed it or it would’ve said well, it could be because o f hurricanes or

– [...] Tsunamis

– o r I mean, other non

- man

made problems ” (#3

- 19 ). Other participants had mixed opinions about whether fish losses caused by human activities are more important that fish losses due to natural causes: “ No, I mean doing this survey itAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 15



### was brought to my attenti on. I really didn’t think about it previously. I know fish are lost by other means, but I wasn’t thinking anything other than what I w as looking at ” (#4/ 5

- 14 ).

1.5.5 Geographic Concerns

Many participants indicated that protecting regional populations of fish wa s more important than
prote cting national fish populations, but some indicated that geographic concerns were not important.

Many partici pants indicated that they value protecting regional populations of fish more than the y valued fishery resources outside of their region. As one stated, “ [...] I can relate to those rivers and inlets. But they were like down in Georgia and southeast, I wouldn’t know those waterways ” (#7

- 18 ). Participants tended to interpret the regions correctly, with one participant indicati ng that “ [...] I think in the back of mind I was already assuming that it was a nationwide problem to begin with. And we were just kind of narrowing in on the northeast .” (#7

- 18 ). However, th e inclusion of both regional and national questions within a single draft survey was confusing to many participants while consequently adding additional length to the survey. Many respondents appeared to be thrown off by the change in scope, with one respondent stating “ if I was to put [the national] question in the front , my answers would be completely different ” (#2

- 14 ). Some other respondents were confused about the re asons for differences in costs between regional and national programs: “ Quite frankly, I didn’t really understand that [...] because if you’re spreading thi s out over the entire United States and everybody is paying, then the cost should be

less ” (#4 / 2

- 6 ). Some others thought that people in other regions should bear the costs of changes in their own region. This issue led to the exclusion of the national ques tions from the regional surveys. Based on these comments, choice questions addressing national policies were excluded from the regional surveys in favor of a separate national survey questionnaire.

Some participants indicated that the specific facility loc ations within the region were important

. Referring to the regional map including within the survey, one respondent stated “ I think it’s good there’s especially a map of our area because that made it more realistic that you know it effects our area like Phi ladelphia region specifically ” (#7

- 6 ). Still other participants found the specific facility locations to be unimportant

or did not notice their locations. Participants’ feedback also indicated that it was unnecessary to make a

distinction between saltwater and freshwater facilities within a given region, and that including both improves understanding of total effects within the region. For example, one participant stated, “ To me it made no difference because the waterways are interrelated ” (#7

- 19 ). Particip ants’ comments did not suggest that it was important for their choices to know manufacturer versus generator locations and this distinction caused confusion among some participants when included within the map on Page 2 of draft survey versions: “

I’m guess ing that’s a generator that’s on a river. You have to really look at it, but you can’t tell the difference if you just look at the red, the charts and map ” (#6

- 13 ). The map was therefore revised to show “all facilities” in order to reduce the potential for confusion among respondents.

1.5.6 Importance of Protecting Aquatic Ecosystems Compared to Other Issues

The majority of participants thought that protecting aquatic ecosystems is at least somewhat important compared to other issues that the government might ad dress, with many indicating that it is import ant or very important.

The majority of participants thought that protecting aquatic ecosystems is at least somewhat important compared to other issues that the government might address, with many indicating tha t it is import ant orAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 16



### very important. Question 2 was revised within the draft survey to compare “prote ction of aquatic ecosystems” more generally to “other issues that the government might address

– such as publi c safety, education, and health”, in order to prevent confusion among participants regarding the question’s purpose

. The majority of participants rated protecting aquatic life and habitat” as at least somewhat important with many participants selecting “very important” and very few participants selec ting “not important”. Multiple participants stated that they view improvements of aquatic ecosystems as an important issue without directly comparing it to other issues the government might address : “ I don't think we do enough for our ecosystems ” (#4/ 1

- 4 )

, and “ We live on the water, so I’m concerned about it. I have children that are in the water, and so very important ” (#1

- 7 ). Some also raised the economy and jobs as important issues, and some described fish losses and related regulations in the context of these issues: “ This industry employs a lot of people, and if you start losing fish population, you’re going to lose a lot more jobs ”(#2

- 13 ), “ And it’s not just the fisherman, it’s the restaurateurs, it’s the waiters, it’s the whole economy, and everything ” (#2

- 13 ), and “ I just want to know cost, whether more jobs would be created by equipment, manufacturing equipment, monitoring equipment

– take care of the equipment, you know, would there be some job creation in this cost? ” (#3

- 3 ).Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 17



## 2 Findings from Focus Gro ups Conducted in 2010

In this section of the report, we present detailed findings from five focus groups a series of cognitive interviews that were conducted in 2010 as part of the design and pre

- testing of the 316(b) stated preference survey. The focus g roups an interview took place in the following locations and on these

dates: 4



### 1) East Providence, RI, July 21, 2010

2) Waltham, MA, July 29, 2010

3) St. Louis, MO, August 4, 2010

4) East Providence, RI, August 12, 2010 [8 cognitive interviews]

5) Bethesda, MD, August 18, 2010

6) Charlotte, NC, September 8, 2010

7) Philadelphia, PA, September 23, 2010

Each focus group was composed of eight to ten individuals that were randomly selected by the focus group facilities from panels of potential participants maintained by each facilit y. Participants were eligible if they were eigh teen years of age or older and if they were not full

- time students. Each of the focus groups included a mix of individuals with diverse socioeconomics backgrounds, based on characteristics such as income, mari tal status, age, rage, education, occupation, and gender. Participants were compensated for their participation in the focus groups.

Within the focus group and cognitive interview format, the moderator first asked the participants to complete the entire s urvey instrument. The moderator then led a general conversation which took the group/individual through a series of debriefing questions. During the debriefing sessions, the moderator asked focus group and cognitive interview participants about their react ions to the survey format and content, whether the survey questions were clear, whether the background information presented in the survey or introductory materials was sufficient and how participants interpreted it, what went through participants’ minds w hen they read survey questions, and what their motivations were for responding they way they did to the survey. Inasmuch as was possible, focus group questions followed ethnographic guidelines to avoid excessive moderator influence on participants’ respons es. Each focus group session was one to two hours long. All sessions were audiotaped and transcribed. 5

, 6



### The focus groups and cognitive interviews covered a variety of topics. For each topic, we provide representative transcript excerpts that illustrate th e variety of viewpoints expressed by focus group participants, as well as the general frequency with which those viewpoints were expressed. Major topics discussed are listed on the following page.

Appendices A through G of this report provide full transcr ipts, survey instruments, and fact sheets for each focus group and set of cognitive interviews.

4 In this report, we use the citation format (#X

- Z to refer to page Z of the transcript for focus group X. Citations to cognitive

interviews use a s imilar format, (#X/Y

- Z), where Y represents the interview number.

5 Where “M:” stands for moderator and “R:” stands for respondent.

6 Audiotapes for two cognitive interviews were inaudible and could not be transcribed.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 18 

### Topics Discussed in 2010 Focus Groups and Cognitive Interviews

2.1 Presentation of I nformation to Survey Respondents

................................ ................................ .. 19

2.1.1 Use of Graphic in the Survey

................................ ................................ ................................ . 19

2.1.2 Comprehension and Retention of Information

................................ ................................ ....... 24

2.1.3 Characterization of Magnitude of Fish Losses

................................ ................................ ....... 26

2.1.4 Usefulness of Introductory Material and Potential for Bias

................................ ................... 29

2.1.5 Presentation Format for Policy Effects

................................ ................................ .................. 33

2.1.6 Characterization of Scientific Uncertainty

................................ ................................ ............. 35

2.2 Interpretation of Information by Respondents

................................ ................................ ............ 38

2.2.1 Eggs and Larvae versus Adult Fish

................................ ................................ ........................ 38

2.2.2 Interpretation of Ecological Scores

................................ ................................ ........................ 40

2.2.3 Importance of Program Details

................................ ................................ .............................. 46

2.2.4 The Warm Glow Effect

................................ ................................ ................................ .......... 48

2.3 Survey Scenario and Respondent Decision

- making

................................ ................................ .... 50

2.3.1 Decision Scenario

................................ ................................ ................................ .................. 50

2. 3.2 Survey Realism

................................ ................................ ................................ ...................... 52

2.3.3 Hypothetical Bias

................................ ................................ ................................ ................... 54

2.3.4 Participant Confidence and Certainty

................................ ................................ .................... 57

2.3.5 Scope Tests

................................ ................................ ................................ ............................ 59

2.4 Budget Issues

................................ ................................ ................................ ................................ ... 60

2.4.1 Budget Constraints

................................ ................................ ................................ ................. 60

2.4.2 Payment Vehicle

................................ ................................ ................................ .................... 64

2.5 Respondent Motivations

................................ ................................ ................................ ................ 67

2.5.1 Motivations for Protecting Fis h

................................ ................................ ............................. 67

2.5.2 Fish Losses versus Fish Populations and Ecosystems Condition

................................ .......... 71

2.5.3 Government Regulation

................................ ................................ ................................ ......... 73

2.5.4 Cause of Losses

................................ ................................ ................................ ...................... 75

2.5.5 Geographic Concerns

................................ ................................ ................................ ............. 76

2.5.6 Importance of Protecting A quatic Ecosystems Compared to Other Issues

............................ 79Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 19



### 2.1 Presentation of Information to Survey Respondents

2.1.1 Use of Graphic s in the Survey
Participants endorsed the use of graphics in the survey booklet. Most felt that the graphics he lped them to visualize how fish are entrained and impinged, technological solutions, facilities locations, and ecosystem

effects. Participants also felt that the graphics improved their understanding of these issues and tended to

think of them as providing information

, rather than pushing them to answer a certain way. Many respondents indicated that they understood the meaning of the graphics. However, som e respondents provided feedback regarding aspects of the various graphics which they found confusing an d on how they might be improved. Participants’ comments during the focus groups were used to refine the graphics within the draft survey in order to improve clarity and reduce the potential for respondent confusion. For example, the current version of the survey instrument no longer distinguishes between manufacturing and generating facilities. Overall, when asked participants preferred that the survey include graphics

. Participants’ comments also indicated that they had little emotional reaction to the ima ge on the cover of the survey and that it did not influence their survey responses

.

M: Was there anything that

— Conversely, did you find anything that was not particularly useful to you? Did you find that you pretty much read all the information in the sur vey?

R: Yes.

R: Yeah, I was just going to comment that

— maybe more illustrations of what they’re talking about as you go through. I mean, the filter thing, where you can see X number of fish on one side and then only the little ones are getting through, it kind of tells you what’s going on. Do the same with the other options. Show us exactly what they’re trying to accomplish and how easy the system that you could implement [crosstalk] I think that would give us more confidence in how to answer the questions.

M: When you say illustrations, you mean graphical [crosstalk]

R: Graphical, yeah, exactly.

M: Do other people agree with that? Disagree? How do you

—
R: I agree.

R: Yeah, that kind of stuff always helps. Pictures are good.

M: In general, do you feel that t he pictures in the survey were useful to you? Not useful? It sounds like

—
R: I thought some of them

— I think you need more. [crosstalk]

R: It might help me to understand the whole program.

M: Were there any pictures that you didn’t find particularly useful?

R: [ inaudible ] Nothing major. [East Providence, RI, 7/21/10, pp.5]

***

M : Page 2. Sorry. The one with the picture and the map right here. What did you think about this page?
R: I thought it was the clearest page in the whole thing.
R: Right.

R: Wow. This is the one thing that I was confused on. So, I couldn’t understand the picture on the top where they’re showing the egg and the juvenile going through and I understand it’s going through the plant. But to me they looked like they’re still alive. I look at it that’s what I thought. The eggs in the juvenile patch. The big fish come. Where’s the problem?

R: You need to see a skeleton.
[...]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 20 R: After reading the previous page and then reading this the picture clicked. Like I knew. I was like [inaud ible]. I got it.
R: I liked the picture. I said that at the beginning I liked the picture. It was good.
[...]
R: What if the other pictures were color or something? You had to read the explanation.
R: You have to read the explanation to get it.
R: Once y ou read it like, oh, yeah. It makes sense.

R: I like the arrows. Large fish are easier to kill. The arrow points to a larger adult fish. Juvenile fish and eggs it points to juvenile fish and eggs.
R: So, did this page help you to understand what was be ing talked about later in the survey? I’m seeing a few nodding heads. I’m seeing one shaking head. What?
[...]
R: It didn’t really make a big difference later on. In terms of understanding like and getting an idea of what I’m about to read or you know ma ke a decision on, yes. But in terms of

– because you know all the questions later on were questions about the policy. Not necessarily what I thought about the actual process
of the fish that live and die.
R: I think it was good to visualize the problem i n the graphic [inaudible]. [Philadelphia, PA, 9/23/10, pp.9]

***

R: I was confused about the generator and manufacturer icons and exactly what’s going on.
M: Could you explain just?
R: I’m not really sure what, I mean, a manufacturer would be a facility that is using one of these cooling screens? Or I didn’t really know. [Philadelphia, PA, 9/23/10, pp.10]

***

M: Were there any pictures in the survey that you felt pushed you to answer in one way or the other?
R: Providing information.
[...]

R: I have one question. I felt that this map was deceptive because the fact is it looks to me like all these numbers relate to salt water fish. If you’re looking at this, if you were taking a survey and you are living in Charlotte for example, you might think this is s omehow going to benefit you. In fact, I really think the only ones that are really significant here are the coastal plants. [Charlotte, NC, 9/8/10, pp.14]

***

M: Could you tell me how you interpreted the little graphics here, what that meant to you?

R: How many fish you save with the filters and with the cycle.

R: I think they were easy to follow. It was pretty straightforward.

R: I thought it was pretty straightforward.

M: Would you say that these graphs were useful in helping you understand this?

R: Ye s.

M: And so, again, I apologize if this sounds like a silly question, but when you looked at, say, this green area, what did that represent to you?

R: The fish that are being saved. [East Providence, RI, 7/21/10, pp.10]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 21 ***

M: In general, did you find t hese pictures useful in helping you to understand what was going on or would it have been just as good if they were gone?

R: Pictures are worth a thousand words.
R: Yeah, I’d rather have them.
M: Were any of the pictures

– I mean I think these comments tha t you’re making are very good. Were any of the pictures confusing or misleading in any way?
R: I don’t think there are very many pictures.
R: The chart on page 7, “Fish saved per year”. That was not very clear to me, the third one down. What is
the darkened portion of that circle?
M: So that little graphic in the box here was

– R: Maybe say “refer to page 5” or something.
M: And regarding page 5, as long as we’re talking about that, the pie charts on page 5, were those relatively clear? Were they u seful? Did you pay attention to them at all? A couple people are nodding.

R: It looks clear.
R: It did say earlier in the first two pages that it’s per year, but you know when you go through it you could lose sight of it. When it says “1.1 billion fis h lost”. If you had per year, it would just make a little more clarity.
R: The only other thing I’d add on these three is on the third one where it says “less than 0.1 billion fish lost,” that’s for the blue pie part. It’s clear if you’ve read the firs t two above but if you were only looking at that, it’s not intuitively obvious. I think overall it works if you’re looking at all three of them.
R: I thought you could just have the words.
R: I could see inside blue is fish lost, green is fish saved. [ Bethesda, MD, 8/18/10, pp.5]

***

M : Just in general, I mean, we’ve been spending some time talking about the information within the survey and the complexity and things like that. In general did you feel like the survey provided enough information for y ou to give reasonable answers?
[...]
R: I think that the way the information was presented was confusing. I liked on page 2 the graph and the illustration because the adage a picture is worth a thousand words. I like the filter and I like the diagrams
and they correlated to each other. But when you start just throwing numbers at somebody and percentages and asking about a graph on a pie chart, it became to me like the words [inaudible] and purposely confusing. [Philadelphia, PA, 9/23/10, pp.3]

***

M: I se e, and what about the cover? Did you notice the cover at all when you started? Any thoughts on that? Just the picture in the center, there.
R: No. It didn't, no. It's a nice picture, but it didn't do anything, you know, wow, spectacular.

M: You don't think it influenced you in any way? During the survey?

R: No, no. [East Providence, RI, 8/12/10, Interview #5, pp.5]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 22 M: So would you say that, you know, that the graphics in there influenced the way you responded to the survey? And then you said that tha t one was particularly helpful [inaudible] cool water structures. Do you think if it wasn't there you might have responded differently?
R: Yeah. I probably would have responded differently. I mean, it gives you a visual image of what has taken place and you can kind of see it on top of when you

— like it's one thing to read about it and you see the images or you can see examples of what you're reading. That does enhance your knowledge of the topic.
M: Did you notice the cover at all when you started?

R: Y eah.
M: Any thoughts on the picture on it?

R: Just reminds me of, like

— because I teach Geography, and I do a lot of stuff with the ocean. It reminds me of, like, schools of fish, and the color obviously pops out, and you can see how it's a small fish. Lo oks like it's a healthy type of environment for fish.
M: Do you think it influenced you at all? Did you notice it when you first started?

R: Yeah. I noticed it. I didn't

— as far as

— kind of gave me an idea what the topic was going to be about.
M: Oh you d idn't think about it much though?

R: No. [East Providence, RI , 8/12 /10, Interview #1, pp.2]

***

M: [inaudible] questions. If you look at this survey cover, how did you interpret this picture? Did it make any difference? Was it important?

R: It doesn’ t really have anything to do with what the survey’s about on the inside.
[...]
M: Did you have any emotional response to the fish, “Oh my God, this fish is so cute?”
R: Yeah, I think it’s [inaudible] because it’s a calming kind of

– it reminds me as if you were looking at a fish tank, an aquarium where [inaudible]. It’s just calm. It’s not your typical [inaudible]. It’s just

– it’s not business. It’s just very calming. I don’t know. [East Providence, RI, 8/12/10, Interview #3, pp.8]

***

M: Just lookin g at the cover, there’s a picture on the cover. Does that influence the way you approach the survey at all?
R: No. I think you could probably get a way better picture than what it is.
M: And when you say, “way better,” what do you

– in what way?

R: Somet hing a little more clear, maybe against a background that’s not so dark. I think maybe even if it was white on the front with this same picture, I think I would feel differently about it. But looking at it without knowing any of this inside, I think my i mpression was, it’s colorful and kind of blurry.
M: All right. [laughter] Did the picture on the cover influence the way you answered the survey in any way?
R: Definitely not. [East Providence, RI , 8/12 /10, Interview #6, pp.10]

***

M: Let’s go over so me of these first pages because there have been a few comments about the information that was in the survey and maybe some information that wasn’t in the survey that you might have found useful. In these first couple pages, pages 1 and 2, how did you inte rpret the information that was there and did you find that information helpful in answering questions later on in the survey?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 23 R: This food web I didn’t understand too well. Am I missing something there?
M: Could you explain how you interpreted it?

R: We ll, I think they were trying to illustrate the cycle and with all those arrows I wasn’t sure how many cycles there were here.
R: To me it makes perfect sense.
R: It’s showing what you eat.
R: Who eats what, and a lot of things eat a lot of different th ings. As each species gets lower down the food chain, each species get munched on by multiple different species. The graphic of the water intake, that made a lot more sense to me than the actual words next to it, but the words made perfect sense, too.
M: How about other folks? Did this information make sense to you and was it useful or were there parts that you didn’t understand or you didn’t find particularly useful?
R: I don’t think I could have answered the questions had I not read this part. I got the gist of it then, especially with the example. [Bethesda, MD, 8/18/10, pp.3]

***

M: What did you think about the graphics and pictures in the survey

— throughout the survey? On the cover and then if you looked through this

— R: They’re all right.

M: Did you find them useful?
R: Yeah, I think so. I think they’re useful. I think especially the regional thing where it defines exactly where this, you know, area that was covered, this particular survey, and then the little things about the fish
and stuf f. It was

— and I think pictures are always helpful.
M: And the little pie charts on Page 5, did you find those

— R: They were OK. [East Providence, RI, 8/12/10, Interview #2, pp.7]

***

M: What are your initial general reactions to the survey?
R: I though t it was very good. I liked all the charts, the colored charts and stuff. It made the questions a lot easier to understand. When I started seeing percentages, that’s where I started getting a little bit confused. Overall, I thought it was very good.

R: Loo king at the charts, specifically as the way it pertains to price of the program. Some of the numbers were constant, but it was trying to change your opinion according to how many fish you save and the price that it was going to cost to save that many fish, and what percentage in relation to actually how many millions of fish you actually save

. I thought that was a bit odd going that way, but I guess you’re trying to see what people are willing to pay to save what.
R: I interpreted it the same way. That’s pr obably the right way to do it. [laughter] [Charlotte, NC, 9/8/10, pp.1]

***

M: Did anybody think it was unclear, or did anybody have any questions on the information here?

R: [ inaudible ] I didn’t know that was [ inaudible ]

R: I didn’t even know what that picture was.

M: You’re speaking about this black

- and

- white

—
R: I saw it and I’m just like, I have no idea what it was. [ inaudible ]

R: Fish crashing into a wall?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 24 R: Who knows?

R: Ag a in, having more photos and being a little bit more detailed so visually yo u can understand it, I think that would help.

M: Did you find this information useful later on in the survey as you were answering questions?

R: Yes. [East Providence, RI, 7/21/10, pp.7]



### 2.1.2 Comprehension and Retention of Information
Despite some exceptions, most participants understood and remember ed information presented in the survey. Some participants indicated that they had to re

- read some parts of the survey or refer back to the survey page which presents the definition of effects. As in any survey, a l imited number of participants failed to understand or remember certain pieces of information presented in the survey booklet, or indicated that they felt the complexity of the information presented in the survey influenced the quality of

their answers. The draft survey was revised throughout the course of the focus groups to reduce

unnecessary complexity, remove extraneous information regarding effect definitions, and reduce the overall length of the survey in order to improve understanding and promote comp letion when self

administered. Participants generally showed an understanding of the scores describing policy effects regarding commercial fish populations, fish populations (all fish), fish saved, and condition of aquatic ecosystems. Participant understan ding and interpretation of the ecologic al scores is discussed in Section

2.2.2

.

M: [...] So it looks like at this point most people have gotten, you know, reasonably far through the survey. At least through, you know, Question maybe 5 or 6 or so. So what I'd like to do at this point is just to have a little chat about it. First question I'd like to ask is pretty broad, and that is just give me your reactions. What did you think of the survey?
R: It's very easy to understand m ost of it. I do agree that a little bit more information needs to be in there.
M: And we're going to explore a number of these things in depth later on, yeah. But at this point I just would like to get some general reactions, thoughts.

R: It was easy to understand for me. [St. Louis, MO, 8/4/10, pp.2]

***

M: Let's talk about this commercial fish populations [inaudible]. So what was your understanding of what
a score of 100 meant?
R: Exactly what it said. One hundred

— I understood that to mean that wha tever the commercial fisherman are capturing is the size that the regulations state that you should be allowed to catch. So if they're not just catching cod that's undersized, I mean, that score would be lower. That's what I took from that [inaudible].

M : So what was your thoughts on just the current scoring [inaudible] the water is at 43? Do you have any thoughts about that?
R: I mean, it's kind of like in the middle almost. Still a little disappointed. I can imagine what it is in other
areas of the w orld where there's less regulations and so forth. You know, I also was thinking about how a lot of foreign countries, particularly Japanese, are coming to our fishing areas, and they aren't following the
same rules that our commercial fisherman have to fo llow. And that's a big problem that can get addressed
and so forth.
M: So how about the next one? "Fish population (all fish)." What was your impression of what, you know, what this one meant generally? What would you say this

— that is sort of talking a bout?
R: I understood this one, like, all fish including ones that we don't consume for food and so forth in that they are able to grow or live to be their natural sizes and so forth. And zero means there's no fish that's, you know, that population of the size that they're supposed to be. And 100 means that they are healthyAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 25 livestock and so forth. That's what why I couldn't put a 10 on my

— then I saw 31 I was a little

— thought that was pretty low in the

— kind of looking back to the statistics I read on the previous pages about the cool systems that maybe those fishes are being affected by that, and the other ones are being killed off. So they're not living to their natural size or whatever.
[...]
M: So what do you think the

— actually let's move on to the nex t question. "Condition of aquatic ecosystems." How would you describe this one compared to the commercial fish population if the fish population affects about

— what do you think this one meant to you when you were going through with the survey?
R: Again i t's maybe the healthiness of those ecosystems. If the temperatures are too high or if the number of fish there are being down compared to say fifty years ago or twenty years ago. Or other conditions in those areas that might be affecting, like right in t he beginning, they were talking about how people are building in those areas or pollution has had an affect on there. And that's what I kind of took it how pollution or number of fish or the depletion of those ecosystems, if it's being encroached by indus try or so forth.
M: Did you feel like you understood?

R: Yeah.
M: That one. Was there any effect that you thought you understood better than the others?

R: The commercial one I understood. I felt like I was most comfortable with.
M: Is there any that jus t

— would there be any one that you were less comfortable with in particular?
R: Probably the first one. "Fish saved for a year."
M: Well let's talk about that one for a little bit. What was your impression of what that meant? What did you think might be confusing about it?
R: Like the current score for the northeast coastal waters is zero. [inaudible]. So little or no fish are being saved for a year because there's no policies in place? I was a little bit confused on that. So that one I read a
few tim es. Then I kind of said re

- read this other stuff maybe [inaudible] first will make sense. [East Providence, RI, 8/12/10, Interview #1, pp.4]

***

M: [...] And the first thing I’d like to ask is your initial reactions. What did you think of it? For examp le, were the survey and questions clear? You know, what did you think?
R: I thought it was pretty clear and concise in what they were asking for between pretty much reading the information that you need to answer the questions. I didn’t have too much tro uble.
M: Other thoughts?
R: I thought they were very complex. You know what, they referred to all the previous answers. Somewhat frustrating.

M : And did you feel able to answer the questions despite the frustrating part of it? Or did you feel the comple xity prevented you from giving good answers?
R: I felt the complexity prevented me from giving good answers in an area that I’m very concerned about
‘cause I fish.
R: Maybe a bit vague in certain areas.

M : I’m gonna follow up on a number of these things. Other just kind of initial thoughts.
R: I kind of agree on page 7 where it first kind of stated like it gave me what it means in terms of each box. Sometimes I definitely had to read that more than once to really get it in my head. Like, all right, this is what I need to understand what this means, this means, this means and this means and how it’s gonna relate to the question I know I’m gonna be asked. So, I definitely had to read those boxes a few times. It wasn’t
that it was hard to understand. It w as just like you said it was a little maybe complex the way it was written out. You had to like, yeah, just had to almost double check. Do I get this? All right. [ Philadelphia , PA, 9/23/10, pp.2]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 26 ***

M: L et me follow up on that, because a couple of fo lks have talked about the information in the survey. You said that you could have used more information. What did you think about the information that was in the survey?

R: The information that’s in there was good, and it was pretty easy to understand. The wording wasn’t too complex or anything like that [...] [East Providence, RI, 7/21/10, pp.3]

***

M: How about other folks? Did this information make sense to you and was it useful or were there parts that you didn’t understand or you didn’t find particul arly useful?
R: I don’t think I could have answered the questions had I not read this part. I got the gist of it then, especially with the example.
[...]
R: Yeah, I thought the whole thing could be simplified. I don’t know who is intended for answering th is but a lot of people wouldn’t go through it and answer it.
M: How did you feel about the level of difficulty or the level of simplicity? Was the information too difficult for you personally?
R: I thought it was oversimplified, honestly, where it was jus t too, I don’t know, easy that I wanted more.
M: Let me ask you, anybody around the table please, there have been a few comments that you might have wanted more information. What specific types of information would you have liked to see on the page? [Bet hesda, MD, 8/18/10, pp.4]

***

R: I had a question on that, because it

– the numbers didn’t make sense to me, I agree the 25 and 50 is big, but I didn’t understand why, if that number is so big, why the commercial fishing, the fish population, and
the con dition of aquatic was so small. Because the fish that are commercial fish that we eat, I mean, I don’t know, I’m not a fisherman, but don’t they eat the smaller fish that we don’t eat, and if they’re not there, then what are they gonna eat? And so this num ber here, the top one, fish saved per year, how could that

– that may be true, but how could it not impact on the others of those numbers, and that’s what I didn’t
understand.
M: So let me ask you, when you saw those numbers, how did you interpret that, or what did you think that meant, if anything?

R: I don’t

– I didn’t know, I didn’t understand it; it didn’t make sense to me. How can the commercial fish be the same on A and B, when it’s so different between A and

– on the commercial fish, when there’s so much different on fish saved per year. What are those big fish that we’re gonna eat, what are they gonna eat in order for them to be there? I don’t know. Michael knows, he’s looking there. [Waltham, MA, 7/29/10, pp.6]



### 2.1.3 Characterization of Magnitude of Fis h Losses

P articipants generally felt that the survey provided useful information about fish losses attributable to CWIS, other sources of mortality, and population sizes

. Participants generally understood based on the introductory material that CWIS is not the largest source of fish mortality with some indicating specific points in the survey which contributed to this understanding. However, a few participants still indicated that the information provided in the draft survey was insufficient for them yo und erstand the magnitude of

the CWIS losses relative to other factors . The draft survey was revised to include pie charts comparing young fish losses from CWIS to estimated adult fish populations for example species. This presentationAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 27



### was deemed important in order to address participant comments on intermediate draft survey versions which did not specifically include examples to this effect

. Also, most participants understood the meaning of “fish saved per year” and felt that it was less confusing than potenti al alternatives for describing the magnitude of fish losses

.

M: [...] The attribute in the middle is described as “fish saved per year”. Would it have made a difference to you, do you think, if we had described that instead in terms of “reduction of fish l osses”?

R: No.
M: No? Do you think “fish saved” was a reasonable way to describe it?

R: Yeah. [Bethesda, MD, 8/18/10, pp.15]

***

M : So, I guess just pushing out a little bit ‘cause I didn’t get too much response. In terms of kind of the way the info rmation was weighted did you feel that it was maybe pushing you to answer the survey in one particular way or another? Or did you feel that it was more kind of even handed?
R: I mean, clearly it’s trying to convince people that there’s a problem. It’s tr ying to show people that there’s a problem and that to fix that problem we need to make a change. It clearly at this point through option A or option B.

M : And did you feel like it was trying to convince you that this problem was particularly big or small ? Or did you feel it was just trying to help you understand the problem?
R: Well, I think it kind of goes back to what this gentleman said earlier, which is clearly it’s trying to make us think it’s big ‘cause it’s using numbers like one billion, you know , this billion. But yet at the same time leaving out what the actual total number of fish are.
R: It said to us that we didn’t have a number in the commercial fish that we have. They never gave us that number. So, it’s kind of it does kind of lead you t o vote on the way that, all right, this is a big problem. This is something that we need to address. This is something that can be fixed.
R: And so, I want to push on this a little bit because I’m hearing two different things. I’m hearing one
comment th at said, well, the first sentence on page 3 that says cooling water use is not the largest cause of fish loss. One person just told me, John, that that made him think that the problem wasn’t a very big problem. And then a couple other folks are it sounds like you’re saying that it sounds like it is a big problem. Where do you all fall on that you know in terms of you know did the survey make it

– you know did the survey seem to make it sound like a big problem or a small problem or somewhere in between?
R: I’ll say this. If there was like a pie chart right below that first sentence showing me the difference between what’s how much fish are lost and affected and how many are not, that probably would have affected the way I looked at the rest of this the r est of the pamphlet.
R: And like she said the graph showing are helpful when you’re dealing with a lot of comparative numbers.
R: Yeah. Like you say one billion you automatically are like, oh, wow.
R: When I read the first couple pages, I thought it was [ crosstalk] maybe slightly slanted ‘cause it talked killed and injured. And it was like they’re planting the seed that this is a huge problem you know. But then the statement on the top of page 3 kind of tempers it a little bit. But I definitely thought they the first two pages definitely planted the seed that this is a huge problem you know. Just looking at the graph and the adult fish are killed or injured and. [Philadephia, PA, 9/23/10, pp.11]

***

M: I'm just

– I

– the question I asked was based on the information on this page in the survey, how important do you think the effects of cooling water

– how important are these effects on the number of fish in the water do you think? Well, what was

– what did you think in your own mind, based on what wasAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 28 here? Do you think of it as being a very large effect, or a small effect? You aren't sure? What kind of

– what were you drawing from the survey in terms of that?
R: It seemed to be larger than it really was to me. When you look at the numbers. I mean , as I look at it again here, 1.5 million and 128,000, that's not a whole lot. You know [inaudible] big mouth buffalo. I mean you put percentage next to that, and what are you looking at? So I mean, yeah. When I first read it I thought it was big, you know, but

– it's still important even if it's one little fish.

R: That's this 0.4 % of a billion fish.

[crosstalk]
R: I mean, yeah, I think you're supposed to assume it's important, otherwise you wouldn't have this

– all this information, all this research , but I mean, how many salmons do Americans eat a year, you know? I

mean, I don't know in comparison to 17,000 pad dle fish? I assume we'd eat more salmon in America in about a year, so it's just, you know, it's hard to see. [St. Louis, MO, 8/4/10, pp.21]

***

M : [...] What are other people’s thoughts on the complexity and whether that made it hard or not hard to
understand?
R: Well, I think it’s a pretty complex issue. And then like I guess it had to be scaled down so the average person can understand it. So, I just felt reading through these things that there’s a whole lot more that I’m not being informed about. Like what went into this score 43? And there was a statement somewhere early on 1.1 billion fish are lost. Well, when you first read that, li ke, wow. That’s a ton of fish just a big problem. Well, if the population of fish is 100 billion, then it’s not

– R: And I agree totally. Like that part of it did tell you how much you know how much we could lose but it never told you how much that we have. It said that there’s no way that they could tell or especially when the species that we didn’t fish for ourselves that were used for you know other fish to eat or things like that, that could lead to a little problem trying to understand that. [Phil adelphia, PA, 9/23/10, pp.2]

***

M : And when you were voting were you thinking you were affecting a small part? Or were you thinking you were affecting or you were changing the bigger?
R: Probably small.

R: Small.
R: I was looking at the numbers because granted it’s a small difference. But there is a difference. If there was no difference at all or if the numbers were in the opposite direction, I clearly wouldn’t pick A or B. I would just leave it in the current situation and I guess sit back and wait to see if a new or different policy was presented. But I wouldn’t just pick these two because they were there. I’d pick the one that actually showed some sort of progress. So, the numbers I was looking at the numbers. [Philadelphia, PA, 9/23/10, pp.15 ]

***

M: Is there any that just

— would there be any one that you were less comfortable with in particular?
R: Probably the first one. "Fish saved for a year."
M: Well let's talk about that one for a little bit. What was your impression of what that mean t? What did you think might be confusing about it?
R: Like the current score for the northeast coastal waters is zero. [inaudible]. So little or no fish are being saved for a year because there's no policies in place? I was a little bit confused on tha t. So that one I read a
few times. Then I kind of said re

- read this other stuff maybe [inaudible] first will make sense.
[...]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 29 M: So you feel like you understood

— I know you said you re

- read it a few times. Did you feel like you
understood that fish saved effect well enough when you got to the different policy questions, when you had that column sitting there? Did you feel like your understanding was good enough that you read it a couple
of times or

— R: After I read it a few times and going through some of these other type of topics here, the commercial fish or fish populations. Then once that's seen together, the solutions in the fall pages, then it started making a little more sense. [East Providence, RI, 8/12/10, Interview #1, pp.5]



### 2.1.4 Usefulness of Intr oductory Material and Potential for Bias
Results from the focus groups revealed that participants’ baseline knowledge about CWIS and fish stocks was limited and mostly based on their personal experience. Some participants stated that they were previously u naware of some of the terms used in the survey. Participants also had little baseline knowledge regarding the size of fish stocks. Participants generally felt that the introductory material would enable them to give meaningful responses to the survey quest ions. Some participants thought that the draft survey did not provide enough information, but generally participants indicated that additional information probably would not have influenced their vote in the choice questions. The draft survey was

revised t o include additional information addressing many of the participant comments and concerns. Additional discussion of participant confidence and certainty is provided in Section 2.3.4

. Many respondents felt that the introductory material provided objective information, rather than feeling that the information included in the survey pushed them to respond a certain way. However some participants expressed a general concern that the introductory material may not be objective or may be biased mainly because it did not provide enough information. Some other participants described what they perceived as a bias in the other direction. Some other participants also indicated that any perceived

bias did not influence the way they answered t he choice questions.

M: Well, actually could we turn to page 1? Just ‘cause one of the things that I did want to do is to go page by page and to see what people thought of each page. What did you think of this first page the information
that was there t hat was presented other than you know what’s just been said?
R: It was pretty educational.
R: Was it useful to you in answering the survey other than the you know the issues that have been issued before? I saw one person shaking their head.

R: Yeah. I di d not use it to answer any question not the first page.
R: It was just like background is how this is what you’re about to read, yeah, for reference.
R: Was it useful background? Or could we have left it out and it wouldn’t have made a difference?

R: I ha d never heard the term forage fish. You know it was educational that there’s a lot more forage fish than there are fish that are actually caught and consumed by humans. Whether or not it affected my answer I don’t know [inaudible].
M: Was there anything on this page that you found confusing or not clear?

R: No. [Philadelphia, PA, 9/23/10, pp.7]

***

M: Did

– when you were looking at Questions 4, 5 and 6, did the size of these effects matter? Or was it just that we were doing a good thing? I mean, were you paying attention to how much

– how large these effects were, or was it just kind of the general sense that you wanted to do something good for the
environment?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 30 R: I think that my perception of how many fish are really in any body of water is very uncl ear. So you could have put down here that you could save 20 billion fish and I probably would have believed it, because I have no concept of how many fish would really be in the water. [laughter] But I think there’s a pretty substantial difference betwe en Option A and Option B on all three of those questions, to where that’s
a lot

– 27 billion compared to two billion is

– [East Providence, RI, 8/12/10, Interview #6, pp.5]

***

M: [...] Let’s turn to the next couple pages where they talk about what kinds o f fish and how many fish are affected. Was this information useful to you as you went through the survey? Was it clear? Was it confusing? What can you tell me about it?
R: It was clear to me and it kind of just gave me a little more information about a nd it was nice to know that the differentiation between commercial fish and recreational fish and the forage fish. So, that I think having that information kind of influenced some of my votes I would say.
M: Any other thoughts on it? In general when you were looking at this information, did this strike you as being kind of fair and balanced? Or did it strike you as being kind of skewed or pushing you to answer in one way or another? Just in general.

R: The first sentence is a bit skewed.

M: In which one ?

R: The cause

– cooling water use is not the largest cause of fish loss in most. It kind of basically it’s saying, hey, it’s not so bad. There’s other things that are doing it, as well, so you know.
M: Did other people notice that sentence?

R: No. [Phil adelphia, PA, 9/23/10, pp.10]

***

M: So do you think if you had more information, that would've been helpful? Or do you think the
information and there was sufficient?
R: I think so, but I mean there are going to be people that say I want to see the

— m aybe the studies or surveys or the environmental report. I don't know.
M: So, you're saying you didn't really feel that way?
R: I didn't personally, but then again, again I'm not up

- to

- date. Someone who may be more in tuned to the issues might want more, you know, evidence of these effects. I don't know. I just don't know enough about it, I guess coming into it, but I felt like it

— I mean it was pretty straightforward.
M: And you sort of went through all the introductory material and read through it all?

R: Yep. [East Providence, RI, 8/12/10, Interview #5, pp.2]

***

M: [...] What are other people’s thoughts on the complexity and whether that made it hard or not hard to
understand?
R: Well, I think it’s a pretty complex issue. And then like I guess it ha d to be scaled down so the average person can understand it. So, I just felt reading through these things that there’s a whole lot more that I’m not being informed about. Like what went into this score 43? And there was a statement somewhere early
on 1. 1 billion fish are lost. Well, when you first read that, like, wow. That’s a ton of fish just a big problem. Well, if the population of fish is 100 billion, then it’s not

– R: And I agree totally. Like that part of it did tell you how much you know ho w much we could lose but it never told you how much that we have. It said that there’s no way that they could tell or especially when the species that we didn’t fish for ourselves that were used for you know other fish to eat or things like that,
that cou ld lead to a little problem trying to understand that. [Philadelphia, PA, 9/23/10, pp.2]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 31 ***

M: [...] In other words, would more information, do you think, have helped you make a better choice in terms of, you know, for example whether you would vote for t hese policies or not? Are you shaking your
head or

–
R: No.
M: It wouldn’t have affected you? How about the rest of you? Would it have helped you make a choice or don’t you think so if we had provided you with that information?
R: It depends on what tha t information was.
R: I probably would have made the same decision, but it would have been nice to know exactly what the
difference between 48 and 53 would have been.
M: I’m sorry. You were about to say something.
R: I agree. I mean, it would be nice to understand what it means, but at the same time you’ve got to keep the survey concise. [Bethesda, MD, 8/18/10, pp.17]

***

M: [...] Let’s put it another way, do you feel you had enough information on what these numbers meant to
make a reasonable vote to dec ide on which option to choose or would you have wanted more information?
R: I think the presentation is biasing the answer.

M: How so?
R: How so. Because just by looking at the “fish saved” and the other percentages going up and you’re comparing that agai nst the cost, it’s biasing us to make a decision which may be adversely affecting all of

us. M: Do you think you were able to make a good choice on this?
R: Based upon what you presented, yes.
M: How about the rest of you? Did you view this as biased o r pushing you to answer in one way or the
other?
R: Only if biased

– I’m sorry. Go ahead.

R: No, I didn’t think so.

M: You didn’t think so?
R: Only if by biased meaning that there’s missing information that could help us in that sense perhaps again. Othe r than that, no.

R: The ultimate cost.
R: Right.
M: Overall, just in general, did you feel that the survey was kind of fair and balanced or did you feel it was pushing you to give one particular type of answer?

R: More NBC than Fox. [Bethesda, MD, 8/18/ 10, pp.14]

***

M: [...] At this point I just kind of want to get different

– the input from different people, and then we’ll go
more in

- depth into specific issues.
[...]
R: [...] I mean, opinions are like belly buttons, everyone’s got one, so how one

- sided is all this information? I always am kind of a little cynical in my thinking, what is the other perspective? What would be others peoples’ opinion? What are other agencies, what are their statistics look like? And for me to makeAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 32 a decision solely based on thi s, I found almost impossible, because I would want a lot more information before I could vote. And I also thought that the discussion that we all have, I felt confident that after we all talked about it I’d probably vote differently than I had initially. S o it’s just an awful lot of information

– yeah, there’s a lot of information here and there’s a lot of questions that are not being answered. [Waltham, MA, 7/29/10, pp.3]

***

M: Did you feel that the survey was well balanced?
R: I never thought I was be ing pressured.
R: I thought it was fair.
R: Some of the questions could have been clearer because I was confused by some things. It was more the
lack of information than being pushed.
R: Going into it, I knew that I wanted to vote because of how important the fish are in the ecosystem. Once you’re looking at those charts, and I know that it says don’t compare them, but even when you look at this and then you don’t look at this, that you’d see the variation of the numbers. I felt like it was pushing you in

o ne direction or another according to what percentage of the population you’re going to save overall. It was biased in that respect. [Charlotte, NC, 9/8/10, pp.4]

***

M: Right, well, the whole

– imagine you had answered this and I had told you based on w hat people chose, that’s what’s going to determine what the government really does, and you were looking at a question like question five, do you think you would have answered the same way, or would you change your answer?
R: Can I just interject something ? At that point, if it’s up for to be voted on, usually you’ve at least been able to hear of the output and been able to study it for a while, think about it, albeit I think what you see and read is affected by a lot of the lobbyists, who are again trying to

– I hate to sounds cynical, but I can only go on the reality of things

– but the point being mainly here, to answer your question, at least you’ve had a chance to study and get some degree of familiarity, and hear some degree of pros and cons of an

argu ment, rather than just taking it up here, if we all, except for Ken here, who’s at least had some experience with fishing, I frankly haven’t, to that extent, and I can just go on numbers that I can see here, and assume that they’re correct.

R: We’re not in formed voters, here. This is one piece of paper and it’s telling you, “that’s perspective,” and it doesn’t even say it where the statistics come from, so until we become more informed voters, I

– how do I know whether I would vote this way or not until I h ear the pros and cons?
M: Well, let me follow up on that a little bit. What did you think of the information that was in the survey? Do you feel it presented pros and cons?

R: No.
M: Could you explain a little bit more what you thought was missing?

R: It’s one perspective, and that doesn’t mean it’s wrong, it may be 100% right, but I want to hear a different perspective.
R: It has no negatives, in this. If you don’t vote for this, what’s going to happen down the road?
R: When you think of a ballot question, there’s always a summary, a pro and a con, on a ballot question when we go to vote. That’s not designed to be the only information used to base your vote, I would hope you’re not voting on just that little bit of information, but you’ve had three, six mon ths of talk shows, reading the paper, studying it, hearing different input, and so if this was a ballot question, you’d have to think about what was set up front. Again, for me the route typically of what’s is in the reality of it versus the hypothetical, and if it’s a valid question

– the answer to your question is I would have still voted D, the way it voted, but I was assuming all that other stuff was accurate, in that

– but you know, not having the pro or the con, it’s hard to say, but in general I want to see our environment and fisheries protected. So
that’s

– and it get down to $5 a month, I can do $5 a month.

[...]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 33 M: So now, onto the con side, did you think of any cons potentially of voting for option A or option B compared to the current situation?

R : Just money.

[crosstalk]

R: The cost

– actually, there’s a big difference between just the Northeast and then when you go to the United States, it’s

– why is it so much more per month? I mean

– yeah, per month. [Waltham, MA, 7/29/10, pp.12]



### 2.1.5 Presentation Format for Policy Effects
Focus groups showed that most respondents correctly interpreted the scales of the ecological scores. In initial draft versions of the survey, a few participants were confused about the meaning of a maximum scores presented in the choice questions. The draft survey was revised to include additional reminders within the choice questions regarding the maximum score under each effect along with its meaning (e.g., “100% is populations without human influence”). Another revision based o n focus group results included additional emphasis regarding how scores would be used in the remainder of the survey as stated on Page

7: “ The next part of the survey will ask you to consider different types of policies protect fish, and indicate how you w ould vote. Effects on each possible policy will be described using the following scores .” Participants clearly understood that the values presented under the “No Policy” option represented the current situation and that the marginal effect of a policy was the difference between values presented under “No Policy” and Option A or Option B. Additional discussion of the scores used to describe policy effects is presented in Section 2.2.2

.

M: We've been going through pretty quick. A ny other thoughts generally after going through that maybe I skipped over? So far?

R: No, I mean I think it's

— I think what you probably are trying to get out of me without coming out and saying it, you know, why did answer this question the way I did, or you know, what affected me

— did this affect. I understand that, but I mean I still think that it's pretty decent numbers. It is broken up. I personally didn't break out in my mind, but they are broken out pretty well, and I think the percentages really, to me, really helped me. The differences across the board. [East Providence, RI, 8/12/10, Interview #5, pp.11]

***

M: Could you tell me how you interpreted that effect, “fish saved”? And it says a score between zero to 100 showing the reduction in young fish lost, could you explain, just in simple terms what that meant to you when you were thinking about the survey questions?

R: Well, 100 would be no fish died?

M: Mm

- hmm.
R: And that’s I think what the first one was trying to say here, was no change in s tatus quo, meaning no fish died. If you chose option A, it means out of 100 fish, 25 were saved. If you chose option B, 50 fish out of 100 were saved. That’s how I took that. [Waltham, MA, 7/29/10, pp.5]

***

M: So when you were answering this, were you just looking at the fish saved per year or were you looking
at the full set of

— ?
R: I was looking at the full set, but I was confused about what each percentage meant and everything. Only now that we're going through it and talking it am I actually under standing what each percentage means.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 34 M: So is it fair to say, and would more information on what each of these percentages meant have been useful, or would that have not been useful to you? It sounds like for at least some people, more information
would h ave been useful, is that something everyone agrees with? Or did some people feel you had enough
information?
R: I don't need more information on the percentages.

R: Yeah.

R: Neither do I. [St. Louis, MO, 8/4/10, pp.15]

***

M: So for fish population, co uld you explain how you're interpreting that again?

R: It says

– well it said on here

– it's compared to the natural undisturbed levels. And the higher score means more fish so I assume 100 is natural, undisturbed level where we would be.
M: Did other peo ple think about that when they were looking at the fish population? Was that something that you were thinking of when you were trying to interpret those numbers?

R: [inaudible]
R: As we sit here I think about it and, you know, if the undisturbed populatio n is x and you have 1 billion lost, you know, it's x minus 1 billion so it's 100 % of the 1 billion that's lost, I think.
R: Yeah, I'm starting to wonder myself.
R: How many people are going to mess with the math? You

– the assumption is that whoever put this survey together knows how many commercial fish are available. And if we can save a third of them by implementing that policy

– I mean, doesn't

– isn't it illogical assumptions? Do we have to put the number
of fish down with this?
M: I'm going to kin d of put something out there, just because I want to see how you react to it. For, say, the commercial fish populations, our intention in writing that was that for example, Option A would be 33 % of essentially the best you could do in terms of those popu lations, you know, that essentially kind of the biological optimum, you know, if the best these fish populations can be without human effects. That's kind of what we're trying to get at there. It sounds like most of you maybe didn't perceive it exactly t hat way, is that fair to say? Or were you thinking of it in that sort of way? Yes, no, maybe?
R: Can you repeat the intent?

M: 33 % out of 100 % maximum

– one of

– what we're hoping that folks can get out of that is it's 33 % of essentially the best that these commercial fish stocks can do, based on government data. Government says, "Well this is the best, essentially the largest size that these stocks can get to," and we're 33 % of the way there. That's the general thought we were looking for. And I'm wondering whether that was we looked at this or whether that was different from the way you were

— ?
R: That's what one would logically assume, I would think.
R: With that said right there, what is the maxim

– what is 100 % maximum commercial fishing popul ation?
Is there an answer for that?
R: Maybe you should have put that number over here, like you got the 1.0 billion a year, you should have put, you know, 350 million or

–
R: Yeah.
M: So would that have been helpful for say, under commercial fish popula tion, to have a number there, you know, of, you know, x [inaudible] fish?

R: Of course it would.

R: Yeah.
R: Maximum equaling, you know, whatever it is. [St. Louis, MO, 8/4/10, pp.13]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 35 M: Unless there are any other, are there any other general commen ts at all?
R: Yes, one, zero to 100 is rather confusing, so I just

– R: I agree on that one.
R: The way it’s stated in some scenarios is rather [inaudible]. And then you’ve got a situation where your fish, say there’s no score, and then you’ve got a score of maybe 43. Where’s the relevance in those scores?
How accurate or

– what’s the basis for that score, and how is that determined in some general sense? Is that 100% realistic? Because those scores are going to have to do with what I’m going to be willing to pay. So if it’s a random score and they’re just guessing, “Oh, it’ll be 50% [inaudible] 43%,” what does that mean?
R: Yeah, it goes from 43 to 45, is that statistically significant to whatever we’re paying as a whole population?
M: As long as we’re talk ing about that, could we actually turn to the page, page 7, where we talk about

– R: It said zero status quo, didn’t it? [inaudible] [Waltham, MA, 7

- 29

- 10, pp.4]

***

M: So after, you know, again after what you just said, did you answer the question base d on the numbers
that were here or not?
R: I think I answered the question based on that sure I would like to improve things. I certainly wasn’t going to say stick with the status quo because I don’t think we’re doing things very well . [...] [East
Providen ce, RI, 8/12/10, Interview #2, pp.2]

***

M: When you were reading the description of this index on this page. You said that you would like to know more. What was your interpreta tion of this index? What it really means to you ?

R: Well, this was all tel ling me that almost half of it affected [inaudible]. I understood it all. [inaudible]. Maybe I should know more about that. That’s basically it.
M: So what does this number mean to you, 48 on an aquatic ecological condition index?

R: [inaudible] 48 [in audible] right in the middle. It’s not a low score it’s not that it’s not natural; it’s more policy [inaudible] number off because it’s a good score.
M: You think 48 is a good score?
R: Well, it’s almost half

– I mean I’m looking at it that way. I mean i t’s not 20% out of 20.
M: What does 100 mean to you on this score?
R: Well, that’s really good. [East Providence, RI, 8/12/10, Interview #3, pp.2]



### 2.1.6 Characterization of Scientific Uncertainty
Participants understood that the ecological changes described in the survey were uncertain, and most participants were comfortable making decisions in the presence of this uncertainty. Their responses indicated that they understood this uncertainty based on the information presented in the introductory

material and c onsidered it when evaluating policy options. Some participants also expressed that they weren’t surprised at this uncertainty and multiple participants expressed that they perceived the values as

a “best guess”. Overall, participants felt comfortable makin g decisions in the presence of uncertainty, but some participants had differing opinions on how it impacted their choices.

R: And I guess the last thing I’d like to ask before we wrap it up is as we talked about, there are a lot of numbers in this survey. When you saw those numbers, did you imagine that those were things that scientists knew with 100% certainty?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 36 R: [inaudible]
R: That one page kind of the disclaimer page.
M: What page is that?

R: [crosstalk]
R: Page 4 where they kind of say, well, we real ly don’t know.
R: We’re just guessing.
R: Scientists can’t predict the number of fish [inaudible] effect. It’s uncertain. Fish population are only known for some species. Scientists don’t really know the total number of fish in the northeast. So, kind of
like

– M: So, where did you imagine that these numbers came from?
R: I don’t think you guys are pulling them out of a hat I definitely think. And I definitely think there is some legitimacy to it. But I do respect the fact that I’m not gonna

– you’re not saying that we’re 100% right. [Philadelphia, PA, 9/23/10, pp.19]

***

M: How did you interpret the statement that “scientists can predict the number of fish saved each year, but the exact effect on fish populations, the number of fish in the water, is uncertain”? How did you interpret it, what that means to you?
R: I kind of assume that would be the answer anyway, because it’s

– I wasn’t surprised at that, the paragraph.
M: Did it bother you that the number of fish was uncertain in the water?

R: No, it didn’t

– it didn’t either way.
M: But was it an important factor in your decision?
R: Was it important that it was uncertain?

M: Yes.

R: No.
M: So it wouldn’t make a difference if they were to say “scientists know the exact number of fish”

– R: Yeah. [ laughter] [East Providence, RI, 8/12/10, Interview #4, pp.7]

***

M: When you were looking at these numbers, were you thinking that these were the kinds of things that
scientists new for certain?
R: No. They even say that.

R: [inaudible]
M: I’m seeing p eople kind of shaking their heads. Can you explain a little bit more about how you interpreted what those numbers

– where they came from?
R: My guess is that it did come from studies but I have a healthy dose of skepticism about the accuracy of
it. I don ’t think it’s been in any way skewed purposefully, but I know that this is a best guess, reasonable guess perhaps.
R: There is a sentence here, “The exact effect on fish populations is uncertain.”
R: Now you have more fish that are eating more of the pla nkton or whatever, which is not

– Taking the carbon dioxide and making it into oxygen or whatever. So, yeah, you increase one thing, it affects everything else, maybe not for the best.
M: How about the rest of you? Is that pretty much the same way you were looking at these numbers? Or were some of you looking at them in different ways?
R: Maybe as being kind of an educated guess.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 37 M: I’m interested in how you interpreted them. I don’t want to put words into your mouth.
R: No, that’s how I thought. [ Bethesda, MD , 8/18 /10, pp.10]

***

M: [...] I want to get your general sense about what you think scientists can predict with certainty and what they can't predict. What was your general impression about the scientific predictions that were included in
her e? Did you think about that much?
R: Well I mean it's always interesting how they come up the numbers obviously. Do they take a certain fragment and they kind of extrapolate from that? Like, you know, they estimate this amount of time at this square foo tage area or whatever, this is how many fish were blah, blah, blah. So let's extrapolate this to a larger area. Is that the way they did it? I mean, I'd like to see how they, you know, how did they calibrate this. How did they come up with this number and so forth, which I'm sure might be complex. But I also like that if it's on this page where the text does admit that. Obviously these numbers are just an estimate. They're not

— can't be a hundred percent accurate which it's good to, you know, they adm it that.
M: So you don't think that influenced the way you responded?
R: It does because it shows me that they are being honest for the most part. You know, you can't obviously be accurate on everything, but this is a kind of a best guess of what

— you know , the loss or whatever. This locates the fish that's being, you know, caught and so forth [inaudible].
M: So if it was phrased a little bit differently and they said they could predict things with a hundred percent certainty, do you think you would have

— ?
R: No. See then I would have definitely [inaudible]. We can't even predict tomorrow's weather. And we're going to predict the habitat of 1.1 billion

— M: So would it make you more skeptical?
R: Yeah. I would have been more skeptical. I mean, obviously this environment is so diverse and complex. There's going to be a variant there and so forth.
M: So would you say overall that mentioning the uncertainty didn't have a large negative impact on your

— R: No. Actually it painted more of an honest picture o f what's taken place.
M: So were you thinking about that at all when you got to the actual policy questions?
R: I did because [inaudible] you know, they're giving you percentages. I mean, how accurate are those percentages? I mean, I like to believe they 're as close as possibly they can get based on information that they're obtaining or they're providing me and so forth. [East Providence, RI, 8/12/10, Interview #4, pp.3]

***

M: [...] What about the order in which we presented the things on the page? Was that something that you noticed at all? I mean, “commercial fish population” at the top, “fish populations” next, where it lies on the page. If we had switched that up, do you think it would have affected you at all? Say maybe if we had put
“fish saved ” up at the top or “cost” up at the top, would that have made a difference? Did you pay attention
to the order?
R: I thought you started with commercial fish populations because that was something that was more of a known fact. They had more numbers on t he commercial fish population. The rest was more of a

gues s timate. [Bethesda, MD, 8/18/10, p.15]

***

M: But what else does this page tell you? Do s cientists know the exact effect on fish populations?
R: No, they don’t know the exact. They don’t, but they’re just saying that this can make it better for the water, for the fish.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 38 M: Is it important to you that scientists don’t know the exact effect? Did it affect you in your answers in any way?
R: Well, they [inaudible] research. So I mean [inaudible] certai n. No, because nothing is for certain

. M: How do you interpret this word uncertain effects? What does that mean to you?
R: That you don’t know the exact number and nobody knows. You have to do research and develop policies so that you can make th e water better. [East Providence, RI, 8/12/10, Interview #3, pp.4]

***

M: Let's go to page 4. It's that page

— yep. So, there's a section where we talk about what science

— scientists can predict. So, based on the information that was presented here, do you think that scientists can predict what's going to happen with certainty to fish populations and the environment from the changes were talking about here? Or

— I mean, what was your sense [ crosstalk ]
R: I mean, again I'm taking them at their word, but it sounds like they could be pretty close, but they can't guarantee it. I mean they don't really know how many babies are born every year and species to

— as far as complete accuracy, no, I don't think so, but I think they probably overall can do a pretty good job at calculating. I'd say yes.
M: So, is that sort of what you were thinking when you were completing the survey?

R: Yeah. I mean, I still had, like, OK.
M: Sort of taking them at their word?

R: Yeah.
M: And so that, you know, not being predictabl e perfectly, you wouldn't say that affected your responses? Or you'd say that you are satisfied?
R: Yes. Because I'm personally taking

— because I'm not, you know, a fisherman or an

— I’m environmentally challenged on some issues. I'm assuming if you're a scientist and you are doing studies, I'm taking you at your word. I still don't think that anyone's capable of complete accuracy in this matter, but
I think it affected

— I guess it did affect my answers because I think that taking them that they can do it pretty decently. [East Providence, RI, 8/12/10, Interview #5, pp.3]



### 2.2 Interpretation of Information by Respondents

2.2.1 Eggs and Larvae versus Adult Fish
Participants generally understood that CWIS primary affects “young fish” which may eventually develop

into adult fish. Many participants stated that the graphic on Page 2 of the survey (“How Fish are Affected by Water Intake”) helped them understand how CWIS impacts fish and how it differentially affects eggs, juvenile, and adult fish. The draft survey was als o revised to further clarify the graphic with arrows linking it to supporting text. Many participants showed an understanding of the meaning of “young fish” and the relationship between young fish and adult fish. However, c omments by some participants also revealed that they may have been somewhat confused about what “young fish” includes . It generally appears that any such confusion did not prevent respondents from being confident in their selections in choice questions.

M: What does juvenile fish mean to you?

R: The kids. [laughter] [Several respondents agreed.]

R: It’s like the fish [inaudible/crosstalk]. They don’t know anything.
R: I was thinking more fish is going to get through the screen if they’re smaller. The smaller, the more eggs
and the more fi sh you’re going to lose. [Charlotte, NC, 9/8/10, pp.8]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 39 ***

M : Page 2. Sorry. The one with the picture and the map right here. What did you think about this page?
[...]
R: You have to read the explanation to get it.
R: Once you read it like, oh, yeah. It makes sense.
R: I like the arrows. Large fish are easier to kill. The arrow points to a larger adult fish. Juvenile fish and eggs it points to juvenile fish and eggs. [Philadelphia, PA, 9/23/10, pp.10]

***

R: The survey did a good job of stressing the importance even thoug h that the number s do n’t reflect, you know, if you understand what I'm saying.
M: We are. I'm sorry, go on.
R: Well, we mentioned this before, but still young eggs and fish are important to

– it gives you some
information on whet her

– so it did sway just, you know, have some effect on how I answer questions, but an egg is an egg which grows to an adult, so these help you decide somewhat, but then I did get lost with the, you know, you don't know how many gizzard chad or

– you know , I don't know if I'm

— [St. Louis, MO, 8/4/10, pp.21].

***

R: [...] "Fish saved for a year."
M: Well let's talk about that one for a little bit. What was your impression of what that meant? What did you think might be confusing about it?

R: Like the cu rrent score for the northeast coastal waters is zero. [inaudible]. So little or no fish are being saved for a year because there's no policies in place? I was a little bit confused on that. So that one I read a
few times. Then I kind of said re

- read t his other stuff maybe [inaudible] first will make sense.
M: So is it the language that you think is confusing?
R: Yeah. It's talking about young fish lost per year. So basically saying

— I mean, I'm reading this a few times. I guess it's trying to talk ab out the younger fish? What does that mean to be young fish? What is the criteria for young fish is one of the questions I had. Is that the number that the EPA set as [inaudible]?
Is that

— like, I don't know [inaudible]
M: So that's something you thought about when you were doing the survey, the young fish part?
R: Yeah. I mean, I notice it's in bold. So I, you know, it's in bold I mean, it's important. Reduction of the young fish lost. What does that mean, young fish? When you say fish I mean, gee you have so many different types of fish. Commercial fisherman, then the other types of fish. And the EPA has different standards of what could be caught and what size and so forth. And to me that was just way too vague and
too broad.
M: So were you tr ying to think about different species?

R: Yeah.
M: So you feel like you understood

— I know you said you re

- read it a few times. Did you feel like you understood that fish saved effect well enough when you got to the different policy questions, when you had that column sitting there? Did you feel like your understanding was good enough that you read it a couple
of times or

— R: After I read it a few times and going through some of these other type of topics here, the commercial fish or fish populations. The n once that's seen together, the solutions in the fall pages, then it started making a little more sense. [East Providence, RI, 8/12/10, Interview #1, pp.5]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 40 ***

M: [...] Again, these are all very good comments. Other kind of general comments on parts of the survey that were clear or that you found unclear or just general reactions to the survey.
R: I just thought it could be more in

- depth. Like, it just seemed very vague. All the background material from page 1 to 7, I thought it could be more like how they would be implemented and how exactly

– One thing it never addresses that I was kind of wondering about, it addresses small fish but never eggs and, you know, which one would be more

– and the actual percentages. I think that would be more beneficial to me. [Bethesda, MD, 9/8/10, pp.3]

***

M: I'm going to ask a few questions again just based on the information in the survey, and I apologize if they seem simple, but again it's important that, you know, that we understand what people are reading when they read the

– a survey talked about saving small fish and fish eggs. So when you were thinking about
how the

– how this works, how were you thinking that that would affect adult fish or why affect adult fish?
R: So you mean small fish eggs?

M: Yeah.

R: How would that affect adult fish?

M: Yeah.
R: Well you're not going to have adult fish if there are no fish eggs [laughter]. [St. Louis, MO, 8/4/10, pp.19]

***

M: So you think

— so we mentioned small fish and fish eggs in the survey. Did you find anythi ng about that confusing? Or how that can affect the population?
R: I would think that killing off eggs and babies would dramatically reduce the population. I mean, it says even bigger fish can be caught in it, but killing off the future fish, so, yeah, I t hink that's very important.
M: But, did you find that confusing at all?

R: No.
M: Any of the language associated with that?
R: No. I thought it was actually, you know, pretty good. [East Providence, 8/12/10, Interview #5, pp.14]



### 2.2.2 Interpretation of Ecologi cal Scores
Participants generally understood the meaning of the ecological scores and differences between ecological

scores. Multiple respondents commented on the complexity of the scores, but few er respondents indicated that the complexity prevented them from understanding the scores or from providing meaningful

responses

. The draft survey was revised to reduce the detail regarding the ecological s cores to prevent respondents fro m being confused or overwhelmed. With this information excluded, participants still appeared to understand the concept being addressed

. This revision also reduces the potential for participants to focus on measures within the aquatic ecosystem score which are not affected by the policy options presented in the choice questions (e.g. , fish tissue contamination). A few participants suggested the “commercial fish sustainability” score used in the initial draft survey may be confusing. The draft survey was revised to describe commercial fishing impacts in terms of a “commercial fish popu lations” and participants generally understood the difference between “commercial fish population” and “fishAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 41



### populations (all fish)”. See Section 2.1.3 for additional discussion specific to the “fish saved per year”

score.

Part icipants indicated that it was useful to have the effects specified separately within the choice questions. Many participants expressed preferences among the effects, while others said they considered

all effects. Some other respondents focused on the effe ct exhibiting the largest changes under the policy options

. The draft survey was revised, changing the order in which ecological effects were pre sented in the choice questions in order to reduce the potential for participants to focus excessively on the “f ish saved per year” score when c hoosing between policy options or to suggest that it is more important than

other scores.

Participants generally appeared to have some understanding of how the ecological scores interact and this influenced their responses. Also, participants generally understood that not all effects will necessarily improve with an increase in “fish saved per year”. Some participants’ responses indicated that the choice questions would have been more difficult if some effects were to go up a nd others down within the same policy option. Some others indicated that they still could have answered the questions.

M : I’m gonna follow up on a number of these things. Other just kind of initial thoughts.
R: I kind of agree on page 7 where it first ki nd of stated like it gave me what it means in terms of each box. Sometimes I definitely had to read that more than once to really get it in my head. Like, all right, this is what I need to understand what this means, this means, this means and this means and how it’s gonna relate to the question I know I’m gonna be asked. So, I definitely had to read those boxes a few times. It wasn’t that it was hard to understand. It was just like you said it was a little maybe complex the way it was written
out. Yo u had to like, yeah, just had to almost double check. Do I get this? All right.

M : How do other people feel about the general complexity? And, I mean, you just made the comment that it was complex but not necessarily hard to understand. Is that somethi ng that other people agree with? I mean, there was another comment there was complex and that made it frustrating I think was what you commented. What are other people’s thoughts on the complexity and whether that made it hard or not hard
to understand?
R: Well, I think it’s a pretty complex issue. And then like I guess it had to be scaled down so the average person can understand it. [Philadelphia, PA, 9/23/10, pp.2]

***

M: Was there any information on this page that you just didn’t use, and it may b e different for different people? Did you look at all the information that was here?

R: Mm

- hmm.
M: Did you feel like you had sufficient information on each of these attributes? In other words, were there any of these that you really felt like you needed more information in order to answer this question?
R: It would have been nice to know how the condition of the aquatic ecosystem would have been improved besides just a numerical value.
R: And actually add a qualification to that in what ways it will be improved. And the first two pages it doesn’t address the ecosystem really at all. Besides fish, does it mean any other, you know, environmental effects or is it simply just fish?
M: What were you imagining when you saw that “condition of aquatic ecosyste ms”? What were you thinking was happening when that changed?
R: I personally thought everything from pollution to the fish to just everything. It’s an ecosystem. Literally comprises everything as a whole.
M: Is that what the rest of you were thinking?
R: Right down to dissolved oxygen content. Perhaps the dead zone in the Chesapeake Bay. [Bethesda, MD, 8/18/10, pp.8]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 42 ***

M: So if you were going to explain to me based on what’s in the survey in simple terms what the aquatic
ecosystem score meant to you when you were answering these questions, could you explain that? How would you explain it?

R: It’s just 48 out of 100. To me, that doesn’t seem to be very big. Same thing with the fish population. 37 out of 100, that’s awful. What’s going on? But then, I don’t know, it doesn’t make sense to me why
commercial fish is at 65.

M: When you were looking at, say, differences between commercial fish sustainability and fish population, all fish, was it just that

— Were you just looking at the numbers, or were you thinking about the differences between commercial fish and all the other fish? In other words, did it matter to you that these were talking about different effects, or was it just that

—
R: You have to go back and look at the previous pages. There’s another page, this one here, that explains those other two items. Again, those are a little bit confusing. The commercial fish thing is a little bit confusing. The fish population score, that’s the total number. That’s pretty good, but commercial fishing
sustaina bility score, that’s

— I was reading through that a couple of times. [East Providence, RI, 7/21/10, pp.14]

***

M: What about moving down, and I’d like to eventually get to question four, but let’s stay on page seven for a minute, moving down to commercial fish populations. Could you explain to me how you interpreted that effect, again, what that just meant to you, what you were thinking, for example when you saw effect on commercial fish populations in the sample question and question four, and also when it was described here, what did you think that meant, in your own mind?
R: Perhaps preventing overfishing by commercial fishermen.
R: What will end up at the supermarket. Commercial fish populations, how’s this going to affect us, [inaudible].

R: Would that be specifically the fish that are more generally used as food for people versus some of these other fish that are just fish, and aside from the fact that they’re God’s creatures, I don’t know why that
should be

– unless they’re used for eating up waste and stuff like that

– but then again, I don’t know

– but they would be less important in my opinion than fish that you use for food. [Waltham, MA, 7/19/10, pp.5]

***

R: So, actually related to that I’d like to turn back. Let’s actually look at question 5. It’s on page 13. So, was it useful to you, I mean, in this question we talk about commercial fish populations vs. all fish populations. Was that useful to have those split out like that?

R: Which one?
M: Here at the top we show the question shows the e ffects on commercial fish populations on the top line. Then down below it says fish populations all fish. Was it useful to have those effects split out like that?
R: To me it was. The fact that you gave the statistics for both types influenced my answer s. If you just said fish in general, I might answer a different way.
R: I’d say, yes, that it is good that it’s separated because kind of what this gentleman is saying. I think if people are looking at this and you just have one fish population, they

– i t’s good that they can actually think in terms of both. Because if they just have one number and people didn’t know if you were referencing fish that actually affect them and fish that don’t, I do think people would vote differently.
R: Me personally it d idn’t make a difference because again I thought of the interdependence of the fish. You know the big fish eat little fish. Maybe the big fish only or the commercial type fish but those fish depend on the other fish. They’re not consumed by humans.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 43 R: Su re. And when you looked at that say commercial fish populations line, what kind of fish were you thinking of?
R: The fish I eat. I was really concerned [inaudible] [crosstalk].

R: The fish that were mentioned.

R: [inaudible]
R: Striped bass, cod, things like that that they had mentioned. I can’t remember what things it was, but they had mentioned certain fish that’s sustainable for us. I was thinking more along those lines.
R: I was thinking flounder, haddock and cod.
R: And when you saw that all the fi sh population all fish, what kind of things were you thinking about
then?

R: Krill, sea robins. [Philadelphia, PA, 9/23/10, pp.12]

***

M: [...] Was it useful

– People, a couple folks have said that they paid attention to fish saved per year. At
least one person said that condition of aquatic ecosystems was important. Do you find it useful to have all these different effects described: commercial fish populations, fish populations of all fish, fish saved per year? Was it useful to have those things all split out like that?

R: Yes.
M: One yes I heard.
R: Well, I mean just to me the commercial fish populations I don’t

– didn’t affect me.
M: Are you saying that you just didn’t feel that that affected you or that the information

– R: For me, it was just th e cost, the condition of aquatic ecosystems and the fish saved per year. That’s all I
looked at.
M: How about other folks? Was it useful to have these different effects spelled out or not?
R: I thought so.
M: You thought so?

R: Yeah.

R: Yeah. [Bethesd a, MD, 8/18/10, pp.7]

***

M: Yeah, question 4. It’s on page 11, the first of the questions with this big table on it. Sorry, I’m jumping around a little bit. How did you answer it? How did you decide how to answer it?

R: For me, what Louis said befor e when I saw the dollar amounts, it seemed relatively inconsequential, and then when I compared A and B, they’re virtually the same statistics except on fish saved per year, where there were a lot more fish saved. It’s like, hey, for twelve more dollars a year saves 0.3 billion more fish? So, I selected Option B.

R: That’s how I felt.
M: How about the rest of you? How did you

– R: Exactly the same way. Looking at our families and our kids and our grandkids. For twelve dollars a year, it’s a no

- braine r. R: For me, it was conditions of the aquatic ecosystem which was the primary

– Not so much as how much is there but the ecosystem. [Bethesda, MD, 8/18/10, pp.6]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 44 M: Let’s

– and as long as we’re talking about the scores, why don’t we

– let’s turn to Question 4. It’s on Page 11. Could you tell me what you voted for and how you decided or why you decided to answer that way?
R: I voted for Option B. I think the most striking thing on the page, or option, was

– or statistic, was the
50% and the 1.4 bi llion fish saved. So, that alone helped with my decision. Then looking down, some of them are not as much of a difference. But I’m all for trying to save as many as we can. [laughter] So

– M: Were you

– when you were answering these questions and you said that

– you know, obviously, the fish saved per year, that had a larger effect and some of the other ones you mentioned had smaller effects . Was it useful to you to have the different effects laid out like this on the page?

R: It was. I think that s ome of them that are

– and I know that on one of the other pages, they

– some of the percentages stayed the same on a couple of them. Those didn’t make me think any deeper into the
decision. It was more the ones that were

– had a larger difference. But, I mean, I read all of them and all of it was taken into consideration; but the closer ones, not as much.
M: And when you say, “the closer ones not as much,” why is that? Was it just because they were closer, or
some other reason?
R: That’s a good one. W ell, like the fish population for all fish in three to five years, 40%, and 43% without human influence, that just didn’t strike me as a deal

- breaker one way or another. [East Providence, RI, 8/12/10, Interview #6, pp.2]

***

M: So what did you choose?

R : What option did I choose? I went with B because I saw that was a higher percentage of fish saved.

R: I did too. I went with B, and I agree. [crosstalk] If everybody kicks in that is willing to, then we can save more [ inaudible ]

M: Great. What about the r est of you? How did you decide what to answer?

R: Same way. It’s either two or three dollars, and you’re saving twice as much fish for an extra buck, come

on. [East Providence, RI, 7/21/10, pp.11]

***

M: [...] Question 5 where you have the moving from fish saved in the status quo from zero percent to 75 percent is quite a large change. And then commercial fish changing from 43 to 47, a much smaller change. Could you explain what that meant to you?

R: Well, I mean, I

— yes, I think so. I think I can say tha t that the effect on the overall commercial fish population is not going to be as large as the effect on all

— of well, what they say fish saved per year. These fish saved per year are simply the fish that were being lost, like the eggs and the fry that are killed by the
hot water

— by the heated water or the ones that get caught in the filters. Those are

— many of those will die anyway because they’ll be eaten by others, so again, I was not so concerned with that fish saved per year. Because to me, the ecosys tem is going to

— this is all going to work itself out in the ecosystem. I was much more concerned about these upper two and the overall condition of the ecosystem.
M: Would it have mattered to you which order these were on the page, do you think?

R: No. No. I think it would have

— no. It doesn’t matter. Because, you know, I think I was a little bit

— I don’t think I just looked at the top thing.
M: All right. Just different people think differently.
R: It’s true. I don’t always vote for the first guy on the ballot. Because his name begins with A. [East Providence, RI, 8/12/10, Interview #2, pp.4]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 45 M: Well, there's actually two things there that I'd like to get at. The idea, and we've only got 90 minutes and so far there are but 1,000 things I want to explore more, but the first thing somebody brought up is that if you look at fish saved, there's a fairly large it seems, you know, 25 %, 50 %, so it's fairly large, and then if you look at effects on say the condition of the aquatic ecosystems, it's m uch smaller. Someone
mentioned that. How

– when

– you can see the same thing for commercial fish populations. How did you interpret that, you know, when you saw that? What

– how did you understand that or [inaudible] you explain what you thought was go ing on here?

R: Fish are only part of it, this ecosystem. You got plants, you got ocean [inaudible] all sorts of life so that's why they

– it's a different [inaudible] percentage is because fish are only a part of it. [St. Louis, MO, 8/4/10, pp.11]

***

R: For some reason, it was on page 12 that the last bullet stood out to me because I felt like up until that point in the survey, my opinion was guided by the numbers and the facts. Then it was saying, saving more fish does not necessarily mean that all the effects will improve. That swayed me a little.
M: How are you guided that it is going to happen?
R: I was being guided by the fact that I assumed that the higher the number, the more fish you save automatically the better.
R: I was thinking of that too

. [Charlotte, NC, 9/8/10, pp.2]

***

R: That question over here where it says, on page 12, “Saving more fish does not necessarily mean that all effects will improve.” If you take a look at all three charts, saving more fish, everything else is better. I t doesn’t

– One doesn’t follow the other.
M: Did that effect how you answered it, or was that just something you noticed as being

– R: Certainly. I looked at the charts and I said I’m getting more bounce for the bucks in every one.
[...]

R: If others w ent down and saving the fish went up, that could have changed some answers.
M: How would you have interpreted that, if that happened, if “fish saved” went up but other things went down? Would that have been confusing to you or do you feel you could have been able to answer the question fairly if that had happened?
R: If the “fish saved” went down and the ecosystem went down that would be confusing.
M: Imagine that say we save some fish, 25 or 75% say in question 5, but imagine that some of these other
th ings went down, like “condition of aquatic ecosystems” got worse. Would that have made the question confusing to you?

R: Yeah.
M: Yeah? You think it would have? How about the rest of you? Would that have made the question confusing?
R: You spell it out right on page 12, it does not necessarily affect everything else.
R: I would just assume that there would be more fish swimming around breathing the oxygen and going to the bathroom and changing the cycle there and if they had that problem they’d have to fish more.
R: I don’t think it would have been more confusing. It would have made me think more about my answer because I would have had to really weigh the different things. [Bethesda, MD, 8/18/10, pp.13]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 46 M: And weighted, could you explain a litt le bit more?
R: The order, the order. The order of importance. The graph.

M: Let me ask

— R: Like we can actually jump, and I'm not saying everyone, but I did it, one would not [inaudible ] but jump to conclusions, this is the most important thing, becaus e it's right on top. I suppose that

– M: What if we put that at the bottom?

R: Pardon me?
R: What if we had put fish saved per year at the bottom?
R: At the very bottom?
M: Well, you know, lower down on the page instead of being up at the top, we put it

— ?
R: What is the most important issue in all of this? The condition of the aquatic ecosystems, at least in my opinion. Shouldn't that be number one?
M: But let me ask the rest, what was the most important issue? When you were looking at all these thing s, what was the most important of these different attributes here? Fish saved, commercial fish, fish populations, condition of the aquatic ecosystem, the cost, what were you thinking in your mind was the most important?
R: The condition of the aquatic eco system for me, but then I really took it a step further and just thought the condition of the ecosystem. Not just aquatic.
M: What about the rest of you?
R: Pertaining to this particular survey, mine was commercial fish population, and increase in cost [l aughter].

M: That's fair. [St. Louis, MO, 8 / 4/10, pp.14]



### 2.2.3 Importance of Program Details
Participant understanding of program details based on the survey was sufficient for them to provide meaningful responses to the choice questions. Many participants exp ressed that graphics and charts within the survey were helpful for illustrating differences between technologies and potential policy programs. Generally responses from participants indicated that they understood that policy options would include a

combina tion of closed cycle and filters. Some participants indicated that they would have liked to have been provided more detail regarding the combination of technologies that would be applied under policy options. The draft survey was revised based on participa nt feedback to clarify that new policies could use a combination of closed cycle and advanced filters. Overall, feedback from participants indicated that these details might allow they to make a slightly more informed decision but are unlikely to affect th eir policy choices

.

R: [...] These options require a different mix of technologies in different areas. It doesn’t really address how they’re different.
M: Do you think that would have affected your answers if the questions had specified this particular m ix of technologies?
R: Possibly.
M: Could you explain how or why that would have affected you?
R: I don’t know exactly. If they had actually addressed the technologies more in the introduction, I think then if they include them later on that could defini tely affect how I would have picked. But without knowing anything more about the technologies, that would be just a meaningless [inaudible].Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 47 M: How about the rest of you? There have been a couple comments about the technologies. Do you think
it would ha ve been useful to know exactly which technologies were being applied or wouldn’t that have mattered to you in terms of how you voted for questions 4 through 6?

R: I assumed it would be a combination of the two.
M: Was that what the rest of you assumed or d id you assume something different?
R: I thought it was a combination. [Bethesda, MD, 8/18/10, pp.12]

***

R: I thought the questions were a little vague in the sense of it would require a different mix of techniques or whatever and without really getting and how would you know what they were and how you know how that affects? Just looking at the end price or result.
R: I read the top part and that’s part of the reason why I went for option A also. Just because it said you
know this different mix of filt ers and cooling cycles you don’t know what the end result may be by using this different mix. That’s part of it I think.

M : So, when you were answering this question, were you answering it based on the numbers that were here? Or were you answering it bas ed on things that maybe weren’t here kind of things that were in the background?
R: Both. Like each time I read when I went to question 5, I had in mind this is a different set of cooling and filters. So, you know that was in the back of my mind also whe n I was looking at the numbers.
R: So, is that something that you think would have made a difference to how you would answer? For example, if we’d given specific say technological details about cooling towers and advanced filters and things like that, is that something that would have do you think helped you give better answers?
R: A slightly more informed answer. [Philadelphia, PA, 9/23/10, pp.6]

***

M: All right. And other than the numbers, the effects that were here on the page, would it really matt er to you the specific technology that was required to get there? For example, whether it were filters or closed

cycle cooling, once you knew what the numbers were?

R: No.
M: All right.
R: Not unless you’re a bogus group that talks about, you know, like

– I don’t think that

– being somebody that didn’t have to look for an extended amount of time, I don’t think that would matter. [East Providence, RI, 8/12/10, Interview #6, pp.8]

***

M: So would you say that the details of the specific programs were imp ortant? Like, for example the technologies that were being used? Or the specific

—
R: Yes.
M: You'd say that those were important?

R: Yes.
M: And would you say that the details of the changes within the options we showed you were important your decision?

R : Yes, I do. [East Providence, RI, 8 / 12 / 10, Interview #5, pp.13]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 48 M: Actually, let me ask

– kind of draw from that and ask the rest of you, when you saw these things changing, why did you think

– what was happening, for example, option A, what in gen eral was happening, why did you think these numbers were changing, in other words?
R: I thought they had different technologies for each option.

M: How about

– R: Assumptions. If this happened then

– option A, option B

– they’re just assumptions. If this w ere done, they were hoping to get a 50% increase, et cetera, et cetera.
M: But when you say “if this were done,” what were you thinking “this” was?
R: The measures taken in controlling the factories and the

– R: If you pay this much, this is what happens.
R: Controlling the industries that are creating the problems, I always took it back to that. That’s what I thought the preface was, maybe I’m wrong. [Waltham, MA, 7/29/10, p.11]



### ***

M: So when you thought about the programs that were presented in the su rvey, the different policies, did you feel like the details were really important? I mean, the details of the changes and the details of what those changes meant.
R: I would like to have seen more information on those two options, which I guess one would be the enclosed system and the other being the filter system. I'd like to have seen more information on that. Like, who is going to build it? Who is going to maintain? How is it going to be checked? Who is going to, you know, who is going to be overse er. Is that the EPA and how often? But, you know, all these type of questions. And obviously not as much if you're going to do that. And what are the costs to those companies are going to be. Is it really going to affect my business? Is it going to b e to the point where we're forcing these companies in New England to put these filter systems or enclosed systems in, and it's going to drive these businesses out of this area and go to different areas. [inaudible] hate that. I mean, losing jobs and so f

orth. [East Providence, RI, 8/12/10, Interview #1, pp.14]



### 2.2.4 The Warm Glow Effect
Many participants indicated that while they were concerned about the environm ent in general, their answers were based on the specific effects presented in the survey. Comments from some participants that their policy choices were based primarily on “fish saved per year” suggest that they felt fish were worth saving for their own sake to some degree. While participants’ responses indicated that they consider increasing th e “fish saved per year” score a good thing but they generally did not express a strong response to fish losses specifically. However, a few participants stated that while they were making

decision s based on the effects p resented within the survey, their choices w ere based at least partially on a desire to help the environment in general.

Some participants indicated that it was difficult to choose the status quo after reading the introductory

information and s ome others indicated that they thought that “they could do a thing” given the relatively

low household cost. A few respondents indicated that they were inclined to support environmental causes and would like “to do a good thing” but still considered the cost and effects under the policy options.

M: I'd like t o push on and again I apologize. I go back to things 'cause I write notes and I want to make
sure to kind of revisit
[...]
R: That's a lot of money for some people.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 49 R: But that's your choice, what they spend their money on.
R: I'm tired of spending money on government stuff myself, you know. Every time you turn around, they

want more.

R: I don't think that's true.
R: The other thing about the survey on people in general is

– forgive me

– [inaudible] what I'm saying is

– or what I'd like to say is that it's pretty difficult to become emotional with fish. If we're talking about puppy dogs, everyone would be scrambling to fill this out. I don't know if people really give a hoot about how many fish are saved.
R: I care because I like to eat it. [laughter] [S t. Louis, MO, 8/4/10, pp.10]

***

M: [...] Were the specific effects important to you when you were answering? Or were you answering just because maybe you want to do your part or do the right thing or something like that?

R: For me it was both. I did a cost benefit on each one. Should I spend that much a year for this marginal improvement? It was really both.
R: I have to admit, I voted generally for the higher plan until we got to question 6, where the condition of the ecosystem didn’t change. So, I voted for the 24 dollar one. Not because

– I mean if the ecosystem had improved, the 72, I would have gone that way, but since there was no change and that was the main thing that I was looking at.
M: Let’s turn to question 6. Is everyone there? This is a different question. Could other folks tell me how you decided to answer that question?

R: I did the same as Leah.
R: I also, yes.

R: To save 400 million fish for such a small amount.
[...]
R: If you put a zero behind each one of those numbers, I’d h ave to think about it very harder than, you know, 24 dollars a year. So, I don’t go out to eat twice.
M: When other folks were looking at the money, were you thinking about, for example, what that 24 dollars would really mean in terms of what’s it worth to you or what you might not be able to do with it?

R: Not for 24 dollars, but 240 dollars I would.
R: I agree. With 24 dollars, that’s, you know, you can easily spend that, but 240 dollars, that does mean a lot more to a lot more people. [Bethesda, M D , 8/18 /10, p.11]

***

M : Sometimes when looking at questions like this and again it’s a similar question but not quite exactly the same. You might, I mean, one way that one might look at this question is to answer and say, if I vote for option A, I’m go nna get a certain change in commercial fish, a certain change in fish population, a certain change in fish safety. And I suppose another way that one might look at it is, well, I want to do a good thing. I want to do the right thing. And you know it doe sn’t really matter to me exactly what’s going on. I just you know I want to do m y part. You know I want to do a good thing. Which would you say are either
of those

– do either of those describe what you were doing? Or which is closer to what you were d oing when you answered these questions?
R: Mine was like, yeah, if we can do something to help as long as the price is right, then do it. And at first I just kind of glanced through the numbers. And then I really looked I thought, well, there’s really no t much effect until

– but there is a big effect here. We’re saving to me it looks like a large number of fish. And I was expecting the economic price to be a whole lot higher. And I thought, well, for $3 a month or $2 a month, yeah, that’s worth it. If it was much higher, I would probably have looked at it and said you know I’d be more inclined to keep the status quo. [Philadelphia, PA, 9/23/10, pp.15]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 50 ***

M: [...] As long as you mentioned pricing, when you were looking at these dollar amounts, were yo u taking those seriously? Were you thinking of those as dollars that you would really have to pay?

R: Yeah.

R: I was wondering how the increases would filter down. I knew I was going to pay them. I was just thinking about how it was going to filter down to us. How do they arrive at the cost? Is it

— Obviously, if an industry needs to refurbish their cooling system, they’re going to have a cost. Yes, they’re going to add to the price of their products. All these systems, that’s all I was going

— To me, it seemed cheap. 36 dollars seemed pretty cheap if you’re going to do this across the New England region. I thought maybe they missed something. I don’t know. That’s my thought.

R: Most people see this, they’re going to check off the least amount to owe. [crosstalk ] We’re sitting here saying we’re going to check this because we know the environment stuff, but most people don’t even recycle, you know what I mean?

R: I feel if it’s going to benefit everyone and be better for the economy, I’m OK with paying a little b it

more.

R: [ inaudible ]

M: When you looked at those dollar amounts, were you thinking about how that would affect what you could afford, what you could buy, things like that?

R: You look at some people that spend money on cigarettes that are not good for y ou, whereas five dollars a month, I think, is going to something that’s going to be good for us.

R: I look at it like a donation. If it was a capital campaign of some sort, would I donate to save fish? Yes, I would. I would pay 36 [crosstalk] I would pay 3 6 bucks. [East Providence, 7/21/10, pp.12]

***

M: What do you think about your confidence in answering the survey and did you feel that the survey was pushing you to answer it?
R: I thought the difference between these levels were sort of nominal. They’ re talking about zero dollars versus $6.00 a month. I think in my case that for six bucks it’s something that’s well worth it. I tend to say

, why not? It’d be worth doing. I saw it being a very nominal cost for the benefit you’re getting. [Charlotte, NC, 9/8/10, pp.4]



### 2.3 Survey Scenario and Respondent Decision

- making

2.3.1 Decision Scenario
Participants understood the choice task correctly and generally believed that the survey decision scenario was clear. Most indicated that they followed the survey’s instruction to evaluate each policy question on its own and did not compare policy options across pages. A small minority of participants stated that they did look page across the choice questions when completing the participants looked back across pages but these pa rticipants generally indicated that this was to help them better understand. When probed it was clear that they were answering the choice questions on their own.

M: So were you comparing them across this or across different pages?
R: No, across this page.
R: I was comparing across pages.

R: I did too.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 51 R: I did too.
R: But I did look back, not to compare, but I did look back just to see how I answered just because I wanted to be consistent in my answers and my thinking was like I just want to make sure that I'm thinking about this right and being consistent. So I don't know that I compared, I just wanted to make

– I think it helped
me understand.
M: Well let me ask, when you were looking at

– and this goes I think for everybody, when you look at each questi on, were you answering it in a sense on its own

— R: Yeah, I did.

M:

— or were you looking at it and in reference to other questions, and kind of answering them as a group?

R: No, on its own.

R: On its own.

R: On its own. [St. Louis, MO, 8/4/10, pp.7]

** *

M: Just moving back to the, kind of between different questions issue, when you were looking

– let’s just look at questions four, five, and six for now, the regional questions. Did you feel that

– when you were answering them

– would you say that you we re answering them independently as each question?

R: [crosstalk]
R: I did, because I was looking at the percentage, it wasn’t much of a difference from beginning to end.
M: When you’re saying

– which question were you looking at now?

R: Well, all of them. When I answered all of them, I was looking at them percentage

- wise, but when I got to eight I was looking at price

- wise, dear God, definitely no. Especially when it’s no longer just the coastal northeast, it’s the whole United States that’s being affected. [Waltham, MA, 7/29/10, pp.15]

***

M: When you were answering this question, and I'm spending, you know, a little more time on Question 4 because it's a little more complex than some of the other questions. Were you looking at all these different
effec ts and fish saved per year and commercial fish and fish populations, or did you find yourself considering each of those effects separately? Did you look at one and not the other? How were

– when you were actually going through and deciding what to answer , how did you

– what was going on in your
head?

R: I looked at each

– considered each.
R: I looked at each, but the most important is the total fish saved per year.
R: [inaudible] a variety of [inaudible] was more important than another [inaudible] I looke d at them all, [inaudible] three bucks, sure, save a fish for three bucks. [St. Louis, MO, 8/4/10, pp.8]

***

M: These different effects, we were talking about some of them. We were just talking about the commercial fish sustainability and the fish popul ation. Were you looking at all of those when deciding how to answer, or were there certain things that you didn’t look at?

R: I looked at the big zero dollars. That’s all I wanted to see.

M: That’s fair. How about the rest of you? Another way, I guess, of asking this is, did you use all the information that was here, or were there some pieces of information that you just didn’t really look at?

R: I looked at it all.

M: Were all these things at least somewhat important to you? Did you consider all of them?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 52 R : I think the commercial fish sustainability is going to be a big one. We all want to see zero, but if we crush the commercial fishing industry, that’s less [ inaudible ] If you look at it as a whole, their catch limits are going down. [ inaudible ] [East Pro vidence, RI, 7/21/10, pp.12]



### 2.3.2 Survey Realism
Participants were generally willing to accept the information presented in the survey at face value. There were some objections regarding the information presented in the survey, and for the most part these obje ctions were related to a perceived insufficiency of information. An objection was raised in early focus groups regarding the basis for values presented in the survey and why it did not list specific information sources. While participants generally suspect ed the numbers were based on government data, some respondents expressed that listing sources would add credibility

. A statement listing organizations which contributed data was added to Page 1 and this appeared to resolve much of these concerns. Overall, participants appeared to approach the numbers and consider them as if they were real when choosing between policy options.

M: Would it have been useful to have that information, where the numbers came from?

R: Yes.

R: Yes, it would.

R: Yeah.

R: [crosstalk ]
R: Some degree of credibility to it, rather than just an arbitrary number that somebody in school [inaudible].
R: You have to list your sources, like “Where did you get these numbers from?” anybody that does a presentation in any class or whatever, you h ave to put your sources like what journal, whoever said it, what year did it come from, all that stuff. [Waltham, MA, 7/29/10, pp.10]

***

M: Would it have mattered to you if these numbers were different?
R: Well, it might have

— I guess it might have

— if t hey were more dramatic, perhaps it might have, you know, made me look a little harder, you know, maybe, I guess if

— maybe I would have been even more skeptical. I’m not sure. But I think if the numbers were more dramatic, that may have swayed me to think that they were maybe a little more valid, you know, even though I can’t believe them. You know, but how can anybody even measure a 1 or 2 percent change, especially when you consider

— sure you can do it for a year, you know, but how can you

— to do something like that long

- term and what other factors have entered
in the meantime, so who knows what is going on. You know what I’m saying?
M: So after, you know, again after what you just said, did you answer the question based on the numbers
that were here or no t?
R: I think I answered the question based on that sure I would like to improve things. I certainly wasn’t going to say stick with the status quo because I don’t think we’re doing things very well. On the other hand, I’m

— you know, I’m not so naïve to th ink that we’re going to make great inroads with just minor changes. [...] [East Providence, RI, 8/12/10, Interview #2, pp.2]

***

M: [...] did you think the cost of the programs were realistic based on what you were getting out of it? I know you voted yes fo r some policy options, but did you really think about, you know, whether those costsAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 53 seemed realistic relative to, you know, other things that you pay for, or whatever kinds of regulations might
cost?
R: I mean they were specified. A lot of the times you d on't get that, you know the specifics on an average. I’m assuming that was an average of this is what, per household

— I didn't think it was that much. I mean, I do feel strongly enough that we do need to help the environment in all aspects, and I feel a l ot of people feel like that, but they also think that cost at this time in the economy

— people just don't have it. And it’s unfortunate. It's gonna make a difference in the way they vote, I personally think. [East Providence, RI, 8/12/10, Interview #5, p p.12]

***

M: Unless there are any other, are there any other general comments at all?
R: Yes, one, zero to 100 is rather confusing, so I just

– R: I agree on that one.
R: The way it’s stated in some scenarios is rather [inaudible]. And then you’ve got a situation where your fish, say there’s no score, and then you’ve got a score of maybe 43. Where’s the relevance in those scores?
How accurate or

– what’s the basis for that score, and how is that determined in some general sense? Is that
100% realistic? Be cause those scores are going to have to do with what I’m going to be willing to pay. So if it’s a random score and they’re just guessing, “Oh, it’ll be 50% [inaudible] 43%,” what does that mean?
R: Yeah, it goes from 43 to 45, is that statistically signifi cant to whatever we’re paying as a whole population? [Waltham, MA, 7/29/10, pp.4]

***

M: What was going through your mind about; you got one very large change and then a bunch of small ones, did that make sense to you?
R: It made sense to me. [One resp ondent agreed.] It explains to you on the side here what the percentage is about. All population in this percentage is going to be smaller because there is a lot more fish than [inaudible].
R: I see the 1% or the 2% as, that’s just 1% or 2%. I’ll either ju st kind o f g aze in the pasture; use that to confirm my answer to the new one.
R: I refer it as these just being things that we just can’t prevent like they said, 100% if we didn’t have any influence on it, this is what will happen. That’s going to happen a nd then at commercial, you’re going to have commercial fish. I thought that those areas were just, those would be realistic because there’s not much you really can do about those but you can do a lot about the cooling system in saving the fish. [Charlotte , NC, 9/8/10, pp.6]

***

M: So did you sort of think of these as being real policy options when you were doing it? Did you treat it like you were

— the information you were providing would be used by EPA?

R: Yeah. I like to think so.

M: And did it seem

— th ey seemed like realistic type choices? Anything stand out to you as not being
realistic?
R: I mean, you kind of

— you like to think the EPA is straightforward and [inaudible] they all have their own agenda. I mean, you always hear about commercial fisherme n complaining and whining. Not whining, you know, arguing about the regulations that's placed upon them as not realistic and so forth. That kind of played into my mind as hopefully the EPA is listening to the concerns and so forth that also
look into the other [inaudible] can't all go fishing in our waters and so forth. What is the best policy to go forth [inaudible] and so forth. [East Providence, RI, 8/12/10, Interview #1, pp.11]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 54 ***

M: We’ll call them question attributes. Would you have wanted to have more information on any of them, or were any of them too unclear? Did

– you wanted to really know something more? Or did you feel like you had enough information on each of these to make a reasonable vote?
R: I think that there was enough informatio n. M: Did you think of this as being a realistic choice when you were answering it?

R: Yeah. [East Providence, RI, 8/12/10, Interview #6, pp.9]



### 2.3.3 Hypothetical Bias
Participants took the survey questions seriously and indicated that they thought that their choices would actually influence policy. They thought that their responses would be used by the government to make policy decisions

. Some took the mere development of the survey as an indication that the government would be using their input to make policy decision s and that their response was important. Many participants were confident when asked whether their choices would be different if they knew the vote

was binding. Some participants expressed mixed impressions of why EPA had developed the survey and

how their responses would be used for decision making

. Overall, participants thought that their votes were important. Participants also indicated that they th ought of the “cost line” in the choice questions as real costs that they household may have to pay if the policy option was enacted. See Section 2.4.1 for discussion of focus group results related to budget constraints.

M: Did you think the government would use this to help improve the policy, do you think that your answer s would matter?
R: I do. [One respondent agreed.]
R: It says here that your answer will help the government decide which policies will be inactive, unless
that’s a lie. [laughter]
R: Or they wouldn’t be doing this survey.
R: Offered their time and money into doing all this.
R: It’s just like with the smokestacks that put out the CO2, that have special filters and all that. The government regulates how much you can put out. That’s going to be the same thing with this. They’re going to regulate how many fi sh you can suck in to your filters and kill. This is just trying to give us some benefits of not killing as many of the fish. That’s the one thing; it doesn’t really say what does this mean. Does this mean the government is doing this and decides to make m ore rules for these plants or are we doing this to give the plant some idea of what we’d accept?
M: When you were answering this survey, why did you think that EPA was doing it?
R: It’s about regulation on filters.
M: How did you interpret why EPA was aski ng these questions?
R: Because they wanted to do something. Even like going back to your earlier question about, with my permission, I think with current administration and everything, it would matter. Something would get done, but it varies according to w ho’s in office and who’s making the policies.
R: I just assumed the EPA is trying to see how many allies they have.
R: They even want to...
R: Who would vote in their favor before they go to wherever they need to go. [One respondent agreed.] [Charlotte, N C, 9/8/10, pp.11]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 55 M: So you know that these questions are hypothetical? Do you feel like your answers would have been different if you knew with certainty that you were going to have to pay that amount rather than just being a survey right now? I m ean, if you

— R: No. It would have been the same actually. It would be nice if we had this type of

— these type of if you want to call if a valid questions on the next election, you know, instead of supporting some legal [inaudible] for bragging [inaudible] you or I or some new building for you or I or some new cleaning facility that's going to filter our waters or whatever, clean our waters. That would be something that I'd be willing to invest some support and so forth.

M: So if it was a referendum, I thi nk you would have answered similarly?
R: Definitely. [...] [East Providence, RI, 8/12/10, Interview #1, pp.11]

***

M: Going back to question 4, imagine that you actually saw this and it was a binding vote that you saw, say a referendum or, you know you we re actually making a decision that would influence what the government did, would you vote the same way?

R: Yes.
R: Yes, but I would hope that I would have done a lot more research beforehand to answer those questions
that I had. [Bethesda, MD, 8/18/10, p p.9]

***

M: So, would you say, I mean, even though this is hypothetical and we're not asking you to pay the money as you walk out the door

— would you say that you thought about it as if it was real money that you actually pay?

R: Yes, I did. I mean, tha t's kind of how I took it in the beginning when, like, I'm gonna make these decisions is that they are true, they are real, and what would I decide if I had to make a decision.
M: So you were thinking about these might be things that actually happen in the future?

R: Yes.
[...]
M: And would you say that you, when you're answering the survey, did you think that the results might actually be used by the government? I mean did you think that your vote was important?

R: Yes.
M: Did you think that affected the way you answered?
R: No, I mean the person

— the type of person that I am I'm an answer as honestly, so one way or the other, I still think it's important. That's why I'm being here asking this. You gotta be honest one way or the other,
so it would be nice if it made a difference, but I'm still gonna be honest. [East Providence, RI, 8/12/10, Interview #5, pp.13]

***

M: And so if you

– you know, if this were

– instead of being just a survey that we’re answering today, if this were, say, a real binding vote an d, you know, you

– this was

– say you were in a voting booth and someone saw a question like this. Would you have voted the same way, do you think, if real money

– you know, real money would be on the line?
R: Definitely. [East Providence, RI, 8/12/10, I nterview #6, pp.3]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 56 M: What I'd like to do

– I have a whole 10 minutes left and there's lots and lots of questions that I would love to ask, but I'd just like to ask a few questions that I have on my list that I wanted to make sure to ask. When you w ere answering this survey, I mean, we're obviously testing the survey today, but based on how you looked at the survey, did you consider that the results might actually be used by say EPA or the government in deciding what to do?

R: Yes.

R: Mm

- hmm.

R: Mm

- h mm. M: And so when you were answering that, I mean, were you taking the question seriously, I guess?

R: Yes.
M: So most people are nodding. And, you know, a little while ago the

– some various discussions about a couple people commented that well, this te nds to focus a lot on fish, and there were some other comments about kind of broader effects on ecosystems

– when you were voting on this, were the details important to you? Were the numbers important to you? For this question?

R: For the national one.

R : Yeah. Any percentage matters, even just one %. And I want to

– on page 17, the last question, [inaudible] to preserve fish and the ecosystem's future generations, I think that the whole [inaudible] thing
should elaborate on that because it would hook m ore people. Some people just don't get that it's [inaudible]
ecosystem. [St. Louis, MO, 8/4/10, pp.18]

***

R: Were you thinking about it like this is you know $2 out of my pocket, if I vote for this?

R: Yeah.

R: Yeah.
R: Absolutely.

R: [inaudible]

M : A nd you know one thing about the survey is you know it’s just a survey question. I mean, if you check the box, it’s not like someone actually comes and takes $2 from you or depending on what you vote. Do you think you know if this were a binding vote, I m ean, if you were in a voting booth and you were being asked to check a box and you know this was actually gonna go into effect if enough people voted for it. Would you have voted the same way do you think?
R: If it looked just like this?

M: Yeah. Assume you got exactly the same, I mean, aside from the other things we’ve been talking about. Imagine you had the same thing but instead of being a paper survey imagine this were something that this is a binding vote. And it’s you know it’s gonna affect regula tions on the spot. Do you think you’d have answered the same way?
R: If I believed that it was gonna affect regulations, I think I would voted the same exact way. If I was unsure it was gonna change anything, I definitely would vote different.

M: So, in other words and please correct me if I’m wrong, but if you were saying that if this was correct and if you were sure that this was gonna do what it said it was gonna do, then you would vote the same way that you just did.

R: Correct.
R: I just wanted to be clear. How about other folks would you have voted the same way you know if this were a binding vote you know?

R: Yes.

R: Yeah.

M: Yeah?

R: Yes. [Philadelphia, PA , 9/ 23 / 10, pp.8]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 57 ***

M: If you had seen this in an actual voting booth, do you think you wo uld have voted the same way?

R: Mm

- hmm [ a ffirmative].
R: Yes. This almost forces you to vote yes or no instead of this middle, where you say you somewhat agree or whatever that option was. [Charlotte, NC, 9/8/10, p.3]

***

M: When you were answering the survey and stated that all of this may be enacted by the government, you said that in the real world it would work differently. Did you think that this was just for research purposes, and that it’s not the real policy?
R: Yeah, I did. I still do [laughter]

. M: What makes you think that?
R: Because it’s the first I’m hearing about it. I didn’t hear

– I mean,
M: What if you didn’t hear about it?

R: If I didn’t know this is

– if I didn’t hear anything about this with the government going on

– I hadn’t
heard a bout this. So to think that this is actually going to happen is one thing, but because I never heard of
this

– the cooling water affecting the fish, and the government and all that. I just assumed that no, it wasn’t going to happen.
M: What would you lik e to see in the survey to help you to understand that that maybe a policy?
R: I don’t think it has to do with survey. I think it’s more the public knowledge, and if it was advertising more, with the news and what have you, newspapers and all that. As oppos ed to actually putting out a survey. That’s my opinion.
M: So you think that the fact that it’s not advertised in the newspapers

– R: Yeah, absolutely. I’m thinking something, too, to do with the contact [inaudible]. You could do a survey on it. [inaudib le] You wouldn’t have to put on it that this is an actual, real survey. I think it’s just

– you can advertise, you can put them out [inaudible] on the news and things like that. [East Providence, RI, 8/12/10, Interview #4, pp.8]



### 2.3.4 Participant Confidence an d Certainty
Some participants felt very certain about their answers. Some others expressed confidence but thought

that additional information might improve their confidence or impact their choices. A few participants indicated that a specific piece of info rmation , such as job losses, might improve their confidence

. Th e vast majority indicated that they were neutral or confident in their responses to Question 8, with those lack ing

confidence as a small minority. Among participants indicating a lack of confid ence, a lack of information was typically cited as the primary reason rather than confusion regarding the survey format or decision

scenarios

. When asked, many participants tended to agree that they would vote the same way if in a “voting booth” or if ques tions were part of a refe rendum. A few participants agreed but caveated their

response somewhat, hoping that they would have done additional research prior to answering.

M: But let me ask you with regard to that

– I want to spend some more time on the sp ecifics of this question, but at the end of the day, how confident did you feel on your

– with your answers to say, Question 4 and Question 5, the choice questions like this?

R: I didn't feel at all confident

—
M: You didn't feel at all confid

— ?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 58 R:

— so I just put "No policy" on everything, 'cause I don't feel like I have enough information to

– I mean the amount of money per month

– I don't have anything to justify it. I don't feel like it's

– I know how big the problem is, so I know how much money it wo uld be worth spending on it, I guess.
M: I'd like to follow up on that, so don't let me forget about

– how did other people feel?
R: Based on the data you provided us [inaudible] on the data in the survey.

M: How about other folks

– I have a mix of

– I'm s eeing some nodding heads, is that confident or not
confident?

R: Confident.
R: That's what I said based on what I had I feel confident. If I would be provided more information maybe my answers would be different.

M: That's fair.

R: Confident.

R: Yeah.

R: Yeah, I'm pretty much confident. [St. Louis, MO, 8/4/10, pp.8]

***

Before I get there, though, I guess I’d like to ask how did you feel about your answers? Did you feel confident about the answers you provided in the survey?

R: No.

M: No?

R: I mean, I felt like

– Generally, I just felt like OK, I think that all species are important, and sixty dollars a year is not that much to spend for that. Let me just put that out there. I just kind of generalized it in my head, just did it kind of quickly at a ce rtain point. So, I don’t feel like I really analyzed it and went over it in my head.
M: How about the rest of you? Would you say you felt confident about your answers? Not confident?
R: To be really more confident, I would need more information beside s, “Oh, we’re going to use the recycling water and different filters in some sort of combination”.
R: This is not something many of us think about on a daily basis.

R: Yeah.
R: And I’d want to know if there are any job losses related to this. [Bethe sda, MD, 8/18/10, pp.3]

***

M: Did you feel that you were being pushed to answer in a certain way by the questions?

R: No, uh

- uh [ n egative].
R: I didn’t felt like I was pushed a certain way, but I wasn’t confident in my answers. I just answered the
best that I thought that I could in the information that was given. If I had taken a test, I feel like I would
fail. [laughter]
R: It almost makes you answer about your feeling and not after you analyzed something.
M: What do you think about your confidence in answering the survey and did you feel that the survey was pushing you to answer it?
R: I thought the difference between these levels were sort of nominal. They’re talking about zero dollars versus $6.00 a month. I think in my case that for six bucks it’s s omething that’s well worth it. I tend to say

, why not? It’d be worth doing. I saw it being a very nominal cost for the benefit you’re getting.
[...]
M: Did you feel confident in your answers?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 59 R: I feel confident. I think the whole point of this is not to giv e us all the details that we need to know about exactly what they’re going to do but maybe to get the feel of the public as far as how much we’re willing to give to protect our recreational and our fish and their population. I wasn’t so much concerned abou t having to know. I got the feeling they just wanted to know how much it was, how far I’m willing to go to protect that. I feel like this, if we sit back and don’t protect it, it’s going to be too late at some point. [Charlotte, NC, 9/8/10, pp.4]

***

M: [...] In general, moving on from the information, in terms of overall, how confident did you feel you about your answers to the survey in general?

R: Not confident at all.

M: Not confident?

R: Uninformed.

M: When you say uninformed, other than that, are the re other reasons why you did not feel confident? Or can you explain why you didn’t feel confident?

R: To me, it was just because I don’t think there was enough information to answer those questions. Questions six and eight, [ inaudible ] we know what the two options were. Either you’re going to use screens or you’re just going to keep circulating the same water. You’re asking me to choose two other options that I have no idea what they’re doing, how they’re preventing with the program. How can I answer a ques tion on something that I don’t even know what the whole program

—
M: What are some other reactions to how confident or not confident you felt about the answers you gave?

R: Like you said at the beginning, there’s no right or wrong answer to those. So you ca n be confident that you made a choice. [crosstalk]

R: I was talking in my answer [crosstalk] I was looking at the options to choose, so with the information I was given, with my choices, I’m comfortable with what I put down. [East Providence, RI, 7/21/10, pp.5]

***

M: Going back to question 4, imagine that you actually saw this and it was a binding vote that you saw, say a referendum or, you know you were actually making a decision that would influence what the government did, would you vote the same way ?

R: Yes.
R: Yes, but I would hope that I would have done a lot more research beforehand to answer those questions
that I had. [Bethesda, MD, 8/18/10, pp.9]



### 2.3.5 Scope Tests
Participants’ responses provide some evidence that the utility participants gain from saving fish increases when more fish are saved, but at a declining rate. Many participants indicated that they would be willing to pay more money to save additional fish. However, some participants who were willing to pay some money to avert some fish loss es (Option A) were not willing to pay additional money to avert additional losses (Option B). Some valued increases in fish saved but were unwilling to bear greater cost without significant increa ses in other ecological effects. One participant stated this was because he would rather get some improvement while saving some money

.

M: Yeah, question 4. It’s on page 11, the first of the questions with this big table on it. Sorry, I’m jumping around a little bit. How did you answer it? How did you decide h ow to answer it?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 60 R: For me, what Louis said before when I saw the dollar amounts, it seemed relatively inconsequential, and then when I compared A and B, they’re virtually the same statistics except on fish saved per year, where
there were a lot more fish saved. It’s like, hey, for twelve more dollars a year saves 0.3 billion more fish? So, I selected Option B.

R: That’s how I felt.
M: How about the rest of you? How did you

– R: Exactly the same way. Looking at our families and our kids and our grandk ids. For twelve dollars a year, it’s a no

- brainer. [Bethesda, MD, 8/18/10, pp.6]

***

M: And you felt that you were able to answer the question given the way you were thinking about the numbers as the result of studies or educated guesses? When you wer e answering question 4, and question 5 and 6, what I’ll call “the choice questions”, were you focusing mainly on the things that were on the page here, “effects on fish”, and were you thinking of that when you were choosing? Or were you answering just bec ause maybe you wanted to do the right thing? Were the specific effects important to you when you were answering? Or were you answering just because maybe you want to do your part or do the right thing or something like that?

R: For me it was both. I did a cost benefit on each one. Should I spend that much a year for this marginal improvement? It was really both.
R: I have to admit, I voted generally for the higher plan until we got to question 6, where the condition of the ecosystem didn’t change. S o, I voted for the 24 dollar one. Not because

– I mean if the ecosystem had improved, the 72, I would have gone that way, but since there was no change and that was the main thing that I was looking at. [Bethesda, MD, 8/18/10, pp.11]

***

M: Could I jus t ask how did you decide how to answer this question 4? Anybody?
[...]
R: I actually went based on what everyone else is saying I assume everybody went with option B. I actually went with option A and only because as much as it seems like a tiny bit of mon ey and it’s only a dollar difference, we really don’t know the overall effect of this option in terms of granted, yes, it’s saving 50% more fish. But at the same time we don’t know the other effects of this policy. So, I went with the
safer route in term s of saving a little bit of money but also still improving the problem. I feel like if after the first couple years it showed improvement, then I could see maybe going with option B in trying to increase, if we see that we’re actually meeting the goals th at are here. Does that make sense? I don’t
know. [Philadelphia, PA, 9/23/10, pp.4]



### 2.4 Budget Issues

2.4.1 Budget Constraints

Most participants considered their budget when choosing between specific policy optio ns and s ome stated

that household cost was the most important factor in their decision

. Even though some respondents stated that they did not focus on the cost of the proposed policy option, their comments and responses to follow

up questions generally revealed that they simply didn’t view the household co st amounts under the policy options as significant relative to their personal budget constraints

. Another participant indicated that household cost wasn’t his primary focus when choosing between policies because of the importance of

the issue

. Some partici pants indicated that they would have to think harder about budget trade

- off if the amounts were higher. Others indicated that they were evaluating the cost effectiveness of options based on changes in the ecological scores. The presentation of household co st in terms of both monthly andAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 61



### annual amounts appeared to help respondents to realistically compare increases to their household budget, with some choosing to focus on monthly amounts and others on annual cost. Overall

, participants approach ed the questio ns as if the household cost amounts would actually come out of their pocket

.

M: Could I just ask how did you decide how to answer this question 4? Anybody?
R: I like looked at that thing pretty much and just said you know how much fish were saved and ul timately from the bottom just increased the cost of household.
M: How about other thoughts?
R: Basically the same thing where the cost that it would cost. It’s almost negligible that $3 or $2 a month [inaudible] just ‘cause you know a day so. It wouldn’t affect me too much. [Philadelphia, PA, 9/23/10, pp.4]

***

M: OK, so you voted for option A? Other folks voted for option B? Did anybody vote for no policy? If this dollar amount had been high enough, would some folks have voted for no policy?

R: I f which dollar amount?
M: For example, imagine that instead of 72 dollars, that had been 372 dollars. I’m just making that number up. Would that have caused anybody to vote for no policy?
R: As opposed to 24 dollars?

M: Yes. In other words, if the cost had been substantially higher than what was listed here, would people have changed their votes?
R: Depending on the value.
R: Depending upon what’s on B. If 24 stays on B.
M: Good point. I guess I was asking imagine that both of the costs on A and B went up significantly.
R: If you put a zero behind each one of those numbers, I’d have to think about it very harder than, you know, 24 dollars a year. So, I don’t go out to eat twice.
M: When other folks were looking at the money, were you thinking about, for example, what that 24 dollars would really mean in terms of what’s it worth to you or what you might not be able to do with it?

R: Not for 24 dollars, but 240 dollars I would.
R: I agree. With 24 dollars, that’s, you know, you can easily spend that, but 240 dollars, that does mean a lot more to a lot more people. [Bethesda, MD, 8/18/10, pp.11]

***

M: So what did you select for an answer on that one?
R: The first option, the 10%.

M: 1

- 10%?

R: Yeah.
M: Do you mind talking about what you were reasoni ng for that?
R: It's my personal situation at this time, many

- wise. That's the only reason, because if I was working at my old job making the money that I was making, I would probably have chose a higher amount. That's the only

reason. M: So would you say that you were more willing to pay for changes that were in the Northeast US as compared to other areas of the country in general?
R: No, I'm saying I can't pay more.
M: You're saying you can’t pay more.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 62 R: Yes, I mean my financial situation at this time.

M : So you care about them, you just

— R: Yes, yes. I mean if I had to vote on it based on what the cost would be, that would be something that's severe to me at this moment, but if I was still working at my old job, then it wouldn't affect me because was

ma ke a very good money and it's still important, but I could afford the higher increase to pay.
M: So it sounds like from what you said previously you were really thinking about the amount of money
and sort of the trade

- offs, like thinking about in terms of the budget, would you say that's true?
R: Yes. I mean, I know it's important and if necessary, and I think we all should be able to pay to help it

— to improve it for our future, but I'm just saying in my particular, you know, where I'm at in my life right now, that’s what I would be willing to pay if I had a choice

— if I was given a choice as far as

— again, if the situation was different, I still think it's just as important, but I'd be able to pay more. I'd be able to give

more. [East Providence, RI, 8 /12/10, Interview #5, pp.12]

***

M: [...] Could you tell me, looking at question four, how you decided

– how you answered and how you decided what to answer? In other words, how did you answer that question?
R: I voted for option B.

R: So did I.
M: Could y ou tell me why you chose to

-- ?
R: Because the fish saved per year doubled under this. And relatively, there was only a 2% difference

– differential in the condition of aquatic ecosystems, and the cost per month came out to only $3 per month,
which I feel is very affordable. [Waltham, MA, 7/29/10, pp.6]

***

M: So is it fair to say that the cost to your household was the most important factor in your

– R: Yeah. Absolutely.
M: Let’s look at question seven, page 15.
R: Actually, I would like to change th is one, because I put [inaudible]

– can I change that?
M: Sure, yeah.

R: What I don’t understand because it’s not coming out of my paycheck and it’s something you want to have sympathy for what’s going on, and you want to do something about it, it’s fine. But when you find out it’s coming out of your paycheck, no. It’s totally different. 15.
M: How did you respond to this question?
R: Questions 4 to 6, I put the cost to my household was too high. The problems created by private facilities, they should fix it without passing on the cost to consumers.
M: So these are the most important factors. [East Providence, RI, 8/12/10, Interview #4, pp.8]

***

R: I mean, are these realistic expectations? Like the policy would only

– ‘cause to me going from 43% to
44% really isn’t that big of a deal. But with the fish saved to me looks huge. And then like and also $2 per month to me like, well, that’s no big deal. So, it almost seems slanted that we don’t hear

– $2 per month doesn’t seem like a whole lot of money. So, you almost feel guilty like 2 bucks a month, I’ll save some
fish.
M: Now when you say slanted, what could you say a little bit more?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 63 R: Maybe we don’t hear how come

– why don’t the industry have these screenings? Why don’t they do

– you know what is t he cost to them? So, it says you know we have this problem. And I almost felt, well, $2 per month. I’ll do that. It’s no big deal. [Philadelphia, PA, 9/23/10, pp.4]

***

M: Would you say that when you were answering this question you were really payi ng close attention to the specific numbers that were on the page?
R: Specific? I think that I looked at all of the numbers and kind of looked across the board and looked individually at all three numbers in each section. But I think that the decision was really mostly based on not just fish saved per year; the cost didn’t really have much influence at all. That’s a tough one. I don’t
know.
M: When you say, “the cost didn’t have much influence at all,” why was that?
R: Because I think it’s super

- importan t. So if it’s something that’s going to affect my kid’s kids down the line or something like that, then that’s something that I could buy into and invest being passionate about
that. [East Providence, RI, 8/12/10, Interview #6, pp.3]



###  

M: So how did you vote for question eight, then?

R: I voted no.

R: I voted no.

R: I shut it down.

R: Yeah.
R: Why would we pay a dollar more per month with no changes affecting three of the four categories, so the rest of the country

– so we’re regulating what? For w hat reason, why are we regulating these people to pay more for no improvement? [Waltham, MA, 7/29/10, pp.13 ]

** *

M: So generally speaking how would you say the monetary costs the options, how do you think that weighed into your decision making when you were answering the survey? Did all the costs seem reasonable? Did some of them seem too high? Was that sort of the last thing you considered? Just kind of put that out there.
R: The cost I mean, it's a tough time. Everyone is going to save a penny her e and there. And obviously if your costs are more than some is going to repay, that's going to affect some of the decision to want to support an initiative. But like to me the costs are reasonable, five dollars per month. I mean, most people
don't think twice about spending three dollars on a Starbucks coffee blah, blah, blah, and they do every day. But to send five bucks a month and we see, you know, it's presented to us after a year the benefits of what this five dollars per month is doing, then you'r e not

— to me that cost won't be a factor.
M: Were you thinking about things that you might have to give up for you to spend that money?
R: No. I was actually thinking about things that we would gain by spending that money, you know,
healthier waters. And that gives us so much when we don't give back which is kind of sad. Everyone keep taking from the oceans and lakes. We're just

— we're not doing a very good job maintaining and taking care
of it.
M: So you know that these questions are hypothetical? Do yo u feel like your answers would have been different if you knew with certainty that you were going to have to pay that amount rather than just being a survey right now? I mean, if you

— R: No. It would have been the same actually. [...] [East Providence, RI , 8/12/10, Interview #1, pp.11]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 64 ***

M: I’m sorry, I’m being confusing. You commented that if you put question eight first, you would have answered everything else differently.
R: I may have, I may have. I mean, I’m not positively sure, but it definitely

– being at the end, made me say

no. M: So I guess my question is, is that just because question eight was different from the others ones, in that
it

– R: It was significantly different, especially the cost factor.
R: Cost factor, yeah.

R: Mm

- hmm, seemed hi gher. So after a while you don’t even look at the numbers, you just look at the price, like how much [inaudible]. [Waltham, MA, 7/29/10, pp.14]

***

M: Now let me ask you

– a couple times we've come back to the [inaudible]

– when you were answering
this question, were you really thinking of these dollar figures

– were you thinking of these where, "OK, what would it really mean to pay say $2 a month or $3 a month?"

R: Mm

- hmm.
M: I mean, were you thinking about this like real money, the kind of money

— ?

R: Oh, yeah. Every dollar counts.
R: It's not a lot of money, when you got so many different regulations from so many different things, and they hit you for everything, [inaudible][laughter]

— R: Right, everything's going up.
R: And so, you know, it's just n ot

– it's not so much the fish that I was thinking about, it's everything else that have to go along with the fish, you know, so, you know, and like I said, any time you start getting into people's money, I mean, you know, when you look at the overall effe ct, we do need the fish, you know, and for more than one reason. But I believe everybody looked at that part, you know. [St. Louis, MO, 8/4/10, pp.10]



### 2.4.2 Payment Vehicle
Participants understood that selecting Options A or B would result in increased costs to their household. They also generally understood that costs to industry would be passed on to consumers. Some participants that received early draft survey versions expressed confusion regarding how these costs would be

manifested. T he draft survey was r evised to improve clarity regarding how these costs would be passed to

consumers by adding a clause on Page 1 stating that goods and services with costs would include “electricity and common household products”. The de finition of “cost per year” on P age 7 was also revised to include “services” purchased by consumers. These revisions appeared to reduce the potential for respondent confusion when evaluating policy options.

A few respondents expressed that companies should be bearing the costs, rather than con sumers. However, there was a general understanding among most participants that consumers would ultimately bear the cost. Also, o nly one participant indicated in Question 7 that this issue was the reason for selecting “No Policy” for all choice questions.

M : What

– did you take a particular message on that from what you read? I apologize, I'm going to answer a lot of your questions with questions.
R: I don't know, just that the comparison of, you know, many are lost.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 65 R: To me, I don't feel like it's

– wha t I don't understand from the survey is how this particular specific problem that would be fixed with the regulation fits into the fish loss as a whole. Because if it says like

– like I circled the things in here that said like, "A third of the fish loss is from commercial and recreational fisherman." And then, "two

- thirds are from

– are part of the food web." So I don't understand what this piece fits in. 'Cause from my understanding of it, the corporations you're talking about are like power companies and electric companies. So my thought process is that the household stuff is being passed down to consumers from the cost of the added regulation they have. So, if it's not just fishing causing it or something, then

– like I just don't see what part of the problem that specific thing regulation fixes. So that's why I had a difficulty understanding the survey. [St. Louis, MO, 8/4/10, pp.4]

***

M: Other just general thoughts before we delve into specific pages and issues?
R: I personally would have lik ed more peripheral information, not just relating to the cost and the fish. Examples

– so for

– should I expand on that or

— ?
M: Sure. You know, it'd be useful to know what you mean by peripheral.
R: From my perspective, I want to know how

– well, first of all how the estimates on cost are reached. Cost per household

– is this only relate to the purchase or consumption of fish and seafood? Or is that going to be a consumer cost or a tax? How many facilities are going to be affected? Sorry.

M: No, that 's fine. I mean, I, you know, again I'm very purposefully not answering them because I want to listen to what you have to say. At the end if you'd like specific answers I will answer the ones that I can

answer. [St. Louis, MO, 8/4/10, pp.3]

***

R: Is there some reason they’re only showing our coast? That’s another thing I really didn’t understand.

R: [ inaudible/crosstalk]
R: I understand that but then these other questions about saving ocean populations and stuff. How come they’re only talking about th is little area of the country? Are we the only ones that our taxes are going to go
up, t his $25.00, $50.00 and $30.00?
M: Would you have preferred to see a survey that addressed a policy that affected the entire country instead of just one region of the c ountry?
R: I would have. It would have made me feel better about my answers because this looks like they’re just asking us to pay the price for everybody. [Charlotte, NC, 9/8/10, pp.8]

***

M: Other kind of general thoughts? We’re going to explore some o f these issue definitely in a little more depth, but before we go on.
R: Instead of passing these charges to us, why aren’t they passing them to these companies that are [inaudible] or that are using the water for

– at least the majority of the cost, not m aybe fully, but

– the ones that are responsible.
R: But then they pass that cost on to us.
R: Exactly.
R: I mean, that’s a great idea, but ultimately it’s all us consumers that ultimately pay for everything.

R: Yeah, but I mean

– I don’t know, this is sti ll a new law, maybe they can still tweak it here and there, I don’t know. [Waltham, MA, 7/29/10, pp.3]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 66 M: Sorry, I'm just trying to find one point here. There was a statement in there where we said, you know, all those policies produce fish losses t hat they would increase the cost of producing many goods and services and for these costs to be passed on to consumers like you, did you think about that sentence at all? I mean, did that

— did you think about what was causing the costs, or anything like t hat? Or were you thinking about your household costs?
R: Well, yeah. I took that into consideration, but as far as what the cause of the costs would be, would be, I took from this, the cooling systems, the change. Some of them, they said, have them already . Some of them have to be changed. Some of them have to have them, and they don't. I am assuming that was the cost that we would pay, eventually.
M: Sure. Actually, let's flip to page 6. I want to be able to look at it.

R: That's OK.
M: Right at the top th ere, read that if you would. So, would you say that bothered you at all, if it was passed on to you? Or

— R: No, I was concerned with it again for personal reasons, but anytime there is improvement like that, companies are going to pass it on to the consum er. It's expected. We're not happy about it [ laughter ], but it's expected. Yes, I mean it didn't

— M: It didn't bother you when you were answering questions?
R: No. I would rather it didn't, but it does. It's a reality . [East Providence, RI, 8/12/10, Inte rview #5, pp.14]

***

M: So now, onto the con side, did you think of any cons potentially of voting for option A or option B compared to the current situation?

R: Just money.

[crosstalk]

R: The cost

– actually, there’s a big difference between just the No rtheast and then when you go to the United States, it’s

– why is it so much more per month? I mean

– yeah, per month. [Waltham, MA, 7/29/10, pp.13]

***

M: Would it be more helpful to say explicitly that it will count toward your electric bill

–
R: Abso lutely.
M: Absolutely?
R: Oh yeah.
M: Would it make a difference to your response?
R: Absolutely.

M: How?
R: I’d be ticked off right away, saying “Help me now, I really don’t care how much”, it goes high enough right now and it’s ridiculous and I think

– you’re talking about products that you can buy, you can avoid
that. Because of what

– you’re going to have to pay the electric bill. You can’t get around that, they’d finally shut it off. But I’d be ticked off. I would be ticked off.
M: Why would you be ti cked off?

R: Because it’s another income

- it’s another cost, and a way the jobs are nowadays, the society, and everything, it’s very costly. Everything’s very costly. And it’s just to actually heat your home and electricity and everything to pay for a ho me, it adds up. Especially in the summer. You’ve got the A/C going on, and central air, or filters for your pool, what have you, it adds up. It’s tight enough now. If thatAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 67 was from the get

- go on my electric bill, then I wouldn’t be like

– you feel bad in a way but yet, it’s costing

us. [East Providence, RI, 8/12/10, Interview #4, pp.3]



### ***

M: Let me skip back actually. If you [inaudible]

— on page 6 we talked about

— right down at the bottom. Actually at the top here. It says "While these policies reduce fish losses they would also increase the cost of producing the end goods and services. These costs would be passed on to consumers like you." Is that something you noticed when you were [crosstalk]

R: Yeah. Good and services

— what do you mean? What are goods and services? That's the question I have for that. What goods it's going to be. Increase in services. You mean services, you mean what, higher

— the EPA, we would have to pay them more or increase that government agencies because we then
need more federal funding is that

— that's what I was thinking about. As far as goods, what goods are they talking about? Are the fish going to be more expensive to buy when you go to the fish market or fishmonger or whatever. And I didn't know what goods and what services would that increase.
M: So you didn't have any necessarily a particular thought that these costs would be passed on to consumers like you? Did you

— R: I mean, eventually yeah. If it's a government agency thing, that's always going to be passed o n to consumers or to the taxpayer and so forth.
M: So you didn't have any real strong reaction to that?
R: No. I mean, as long as it's done for all the good reasons and [inaudible] be five dollars a month. That's all it could be. [East Providence, RI, 8 /12/10, Interview #1, pp.15]



### 2.5 Respondent Motivations

2.5.1 Motivations for Protecting Fish
Participants cited a variety of reasons for wanting to protect fish. Some participants indicated that they wanted improvements in effects either for sake of employment or because of their own consumption. Some participants wa nted to maintain recreational opportunities . Some other participants indicated that they were interested in the role that fish losses and the policy options play within the environment rather

than consu mptive uses and a number of participants indicated that they wanted to preserve fish populations for future generations. Most participants cared equally about fresh and saltwater fish or

considered this distinction as of little importance w hen choosing bet ween policy options. Some participants also indicated that they were motivated by concerns regarding household costs and the state of the economy

.

M : What's that?
[...]
R: I'm tired of spending money on government stuff myself, you know. Every time you tur n around, they

want more.

R: I don't think that's true.
R: The other thing about the survey on people in general is

– forgive me

– [inaudible] what I'm saying is

– or what I'd like to say is that it's pretty difficult to become emotional with fish. If we' re talking about puppy dogs, everyone would be scrambling to fill this out. I don't know if people really give a hoot about how many fish are saved.
R: I care because I like to eat it. [laughter] [St. Louis, MO, 8/4 /10, pp.10]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 68 M: Well, let me put it into

– ‘cause we’re speaking about pro versus con language. What would you see, just in simple terms, as kind of the pros of, the benefits of say voting for option A or option B here, in your
own mind?
R: Preserving fisheries and the fish. I don’t have any children, but there are other people that do, and you certainly want to have a future, whether it’s fishing and/or commercial fishing for eating, and it’s more than people that eat, there are a lot of animals that eat the first that are caught, too. Th e byproducts of what we don’t eat, the bones and the heads and whatnot, that gets ground up and goes to cattle, I’m sure.
M: And what about the rest of you? Other thoughts on what kind of the pros or the benefits for voting for one of these options might b e?
R: Well, I suppose that the population obviously continues to grow, therefore what we have now isn’t necessarily going to be enough in the future, so therefore you have to do something to try to protect and preserve that, but it’s supply and demand, I s uppose. R: And also, you have to look at the employment factor. This industry employs a lot of people, and if you start losing fish population, you’re going to lose a lot more jobs.
M: Now when you say “this industry,” which

– R: The fishing industry. [Wa ltham, MA, 7/29 / 10, pp.12]

***

M: Well, what I’d like to do is just ask you, and again we’re on the page where it says, “This survey is similar to a public vote,” page seven. What did you think about when you were looking at these different effects, fish saved, commercial fish populations, when you were looking at those numbers?
R: In the back of your mind, you have to keep

– consider your children, grandchildren, great

- grandchildren, is there gonna be enough fish and food for them? So it’s not just us, i t’s perpetuating the food chain.
R: And the recreational chain, too. I mean, my husband’s an avid fisherman, and

–
R: I used to do it.
R: Thinking back on when you were a child, particularly [inaudible] fisher fishing with women, but you know, those are fo nd memories, and you take the fish away and then that goes away too. [Waltham, MA, 7/29/10, pp.4]

***

M: So were you thinking about other issues when you're completing the survey at all?
R: [inaudible] go through the survey I was thinking about tourism in Rhode Island, and take New England [inaudible], we are a very tourist area. One of the big reasons because we're an ocean state. We're so close to the beaches, and we have beautiful beaches and waterfronts and so forth. And that's being depleted. Ou r ecosystems are being damaged, and no tourist wants to go to an area where it's polluted. No tourists are going, you know, get a hotel room next to a lake or whatever that smells of rotting whatever, you know, fish or a beach front area that's damaged. So that definitely plays into my mind. And, you know, I love snorkeling, and I love being outdoors especially. I'm a beach guy so that plays heavily into my influence. I don't think we do enough for our ecosystems [inaudible].
M: So you were pretty much focused on the aquatic ecosystems and fish and things like that?

R: Yes.
M: Were you thinking about

— well it mentions public safety, education, health. Were you thinking about other things that government spends money on or regulates?

R: I mean, we do and I think we do enough if not

— and some people obviously do too much with those other topics like education [inaudible]. And you know, me personally, I'd like to see more

— spending more and more effort and time on the ecosystems and so forth. [East Providen ce, RI, 8/12/10, Interview #1, pp.3]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 69 ***

M: So were you thinking about any particular type of fish when you're going through these questions?
R: No. I'm not a fisherman, so. I used to be. My brother used to take me a lot. And I'm not a big seafood

eater. I mean I do here and there. As far as fish go, but the environment is more of what I was kind of interested in what I was called on this is how it affects the environment, the water and everything that goes

on. [East Providence, RI, 8/12/10, Interview #5 , pp.9]

***

M : And so, when you were answering say for on question 4 through 6, were you thinking you were affecting just the northeast or the whole country?

R: Just the northeast.
[...]
R: I was thinking more fresh water. I was thinking the industrial no rtheast all these plants along these rivers. I see it driving along the Schuylkill. I see, you see plants, if they’re operational anymore along the Schuylkill. And just the other day I could see water spewing out into the Schuylkill and I just thought t hat doesn’t look very good. So, my whole focus was the industrial northeast rivers and streams. It didn’t even
occur to me about the ocean and fresh vs. salt water.
R: To me it made no difference because the waterways are interrelated. The Delaware Ri ver becomes the Delaware Bay. The Schuylkill River goes into the Delaware and the Delaware Bay goes into the Atlantic
Ocean.

M: How about other folks?

R: I don’t think it would make a difference.
R: It’d been nice to [inaudible].

R: It wouldn’t have made a difference for me

. [Philadelphia, PA, 9/23/10, pp.18]

***

M : So, I want to just ask in general you know when you go back to the choice questions 4, 5 and 6 when you’re voting for things, it sounds like a number of people at least you know voted you kn ow either for option A or option B. Why is it

– could you explain why you’d be willing to vote for something? Why would you vote for that? Why is it important to you to support a program like that? What’s going through your head?
R: The sustainability of life was going through my head. I have children. Thinking of my children. Thinking about what kind of world they’re gonna have. And you know from there their kids and just everybody in general.

M: What about other folks?
R: I felt the same thing lik e he said but I was thinking of my threshold for tolerance, too.

M: Threshold for tolerance of?
R: Spending more money.
R: I was thinking actually I wasn’t thinking at the time I answered but thinking through it the BP oil spill and how companies can destr oy the environment and again I like to do some fishing. I’m going out this weekend probably. And just thinking about my children and actually my children’s children that we should be careful what we do so that there’s like he said sustainability for futu re generations.
R: When you were answering, was it

– there have been a couple comments about fish that you use and fish that you don’t use. When you were voting, was it primarily about things that you use? Or were other things also important?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 70 R: I thin k the waterways in general for me anything.
R: I think my overall thought was just the environment in general again just saving it, keeping it as clean as we can. So, when I was thinking of the fish even though it was nice to see them separated, I was rea lly thinking of both the environment as a whole. [Philadelphia, PA, 9/23/10, pp.14]

***

R: Let me ask a question. I want to know, you know, if this is relative to what we’re talking about. Would it make any difference if it would have been saltwater f ish or freshwater fish?
M: Would it make a difference to you, do you think?
R: Right. More freshwater fish than saltwater fish, I would think so.
M: Would that have affected the way that you answered the survey?

R: I believe so. [Bethesda, MD, 8/18/10]

***

M: Do you agree that it would have been easier if it had been all cooling water intakes and fresh and salt water instead of trying to look at just one or the other?
R: Honestly, even just looking at it, I was looking at it and we’re going to save a fish. My effect was more on the household income, like around $40.00 is the price point. The $3.00 a month isn’t anything. I was like, okay, $2.00 as opposed to $3.00 and you can save 50 million more fish.

R: It would be $36.00 and $3.00 a month
R: If they were to give this survey in good terms, everybody would be picking this column, the good one.
R: Right now, like she said on the boat, $2.00 is a lot of money if you don’t have any money. [One respondent agreed.]
R: I was thinking about long term for my children, their children.

R: That’s more how I kind of answered it. [Charlotte, NC, 9/8/10, pp.6]

***

M: Turning, then, I guess, to question two, which is this page right here, could you tell me how you reacted to that question, how you answered it?

R: Almost all of it was important. I’m not a big aquatic

— I’m not a fisherman or anything like that, so to me that was the only one that was somewhat important. The rest of them, reducing my cost, is very important.

R: Why would they put reducing taxes as a qu estions in here? I mean, I’m just asking. Is that just a trick question?

M: I’m going to not answer that. [crosstalk] I’ll happily answer anything after we’re done.

R: It’s just kind of weird to have that thrown in.

R: The only thing I wasn’t sure was the homeland security link. I feel like that one’s kind of thrown in.

R: That’s the same thing as reducing taxes. Does that pertain to what we’re talking about here? I don’t
know.

R: I put not important on both. Where are the control questions? [crosstalk]

R: We live on the water, so I’m concerned about all of it. I have children that are in the water, and so very important. [East Providence, RI, 7/21/10, pp.6]

***Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 71 M: L et me follow up on that, because a couple of folks have talked about the information in th e survey. You said that you could have used more information. What did you think about the information that was in the survey?

R: The information that’s in there was good, and it was pretty easy to understand. The wording wasn’t too complex or anything lik e that, but I don’t know if it gave me enough information to answer the questions. That’s the only thing. Maybe I need some more. [ inaudible ] First thing I always thought of. The way the economy’s going and everything, I think it’s important to maintain in dustries. Granted, we’re going to hammer them with a lot of cost. Even though you’re going to save the ecology, everything else is going to go down the tubes. Other things are going to be [ inaudible ]. So that’s important to me. [East Providence, RI, 7/21/ 10, pp.3]



### 2.5.2 Fish Losses versus Fish Populations and Ecosystems Condition
Participants’ choices and statements implied different opinions about whether changes in fish mortality were of importance without large increases in the long

- term fish population or t he condition of aquatic ecosystems. Some participants stated that they choose a policy option because of the difference in fish

saved

. Comments from some of these participants indicate that they want to avoid losses because they place some values on fish i n their own right

. Some other participants indicated that effects on populations or ecosystem condition were most important, and that they felt uncomfortable spending money to prevent fish mortality if there was uncertainty in whether it would improve thes e effects

. Generally participants understood that in most cases the amount of fish saved is small relative to the total fish population.

M: Could you tell me, what was the process that went through your mind when you were answering question four? How did you decide what to answer? You mentioned what was going through your mind. What about the rest of you? How did you decide what box to check?
R: [ inaudible ] more fish, and the commercial fish sustainability.

M: So what did you choose?

R: What option did I c hoose? I went with B because I saw that was a higher percentage of fish saved.

R: I did too. I went with B, and I agree. [crosstalk] If everybody kicks in that is willing to, then we can save more [ inaudible ] [East Providence, RI, 7/21/10, pp.11]

***

M: Let’s

– and as long as we’re talking about the scores, why don’t we

– let’s turn to Question 4. It’s on Page 11. Could you tell me what you voted for and how you decided or why you decided to answer that way?
R: I voted for Option B. I think the most s triking thing on the page, or option, was

– or statistic, was the 50% and the 1.4 billion fish saved. So, that alone helped with my decision. Then looking down, some of them are not as much of a difference. But I’m all for trying to save as ma ny as we c an. [laughter] So

– M: Were you

– when you were answering these questions and you said that

– you know, obviously, the fish saved per year, that had a larger effect and some of the other ones you mentioned had smaller effects . Was it useful to you to ha ve the different effects laid out like this on the page?

R: It was. I think that some of them that are

– and I know that on one of the other pages, they

– some of the percentages stayed the same on a couple of them. Those didn’t make me think any deeper into the
decision. It was more the ones that were

– had a larger difference. But, I mean, I read all of them and all of it was taken into consideration; but the closer ones, not as much.
M: And when you say, “the closer ones not as much,” why is that? W as it just because they were closer, or
some other reason?
R: That’s a good one. Well, like the fish population for all fish in three to five years, 40%, and 43% without human influence, that just didn’t strike me as a deal

- breaker one way or another. [E ast Providence, RI, 8/12/10, Interview #6, pp.2]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 72 ***

R : I have to admit, I voted generally for the higher plan until we got to question 6, where the condition of the ecosystem didn’t change. So, I voted for the 24 dollar one. Not because

– I mean if th e ecosystem had improved, the 72, I would have gone that way, but since there was no change and that was the main thing that I was looking at.
M: Let’s turn to question 6. Is everyone there? This is a different question. Could other folks tell me how

yo u decided to answer that question?

R: I did the same as Leah.
R: I also, yes.

R: To save 400 million fish for such a small amount.
M: So, which one did everyone vote for?

R: Fish saved.
R: I did option B.
R: Option B.
R: Option B.
M: OK, so you voted fo r option A? Other folks voted for option B? Did anybody vote for no policy? If this dollar amount had been high enough, would some folks have voted for no policy? [...] [Bethesda, MD, 8/18/10, pp.11]

***

M: But let me ask the rest, what was the most i mportant issue? When you were looking at all these things, what was the most important of these different attributes here? Fish saved, commercial fish, fish populations, condition of the aquatic ecosystem, the cost, what were you thinking in your mind wa s the most important?
[...]
R: Pertaining to this particular survey, mine was commercial fish population, and increase in cost [laughter].

M: That's fair.
R: But see everything else follows the condition of the aquatic ecosystem. Commerc

– what I'm saying i s the commercial fish population hinges upon the condition of the aquatic ecosystem, as does the fish population, as does

– it all follows that condition.

R: And it does seem like

– 'cause it's, you know, kind of written in small print underneath it

– all you do, and kind of, you know, and you're just reading through it and scanning it and trying to get done with it, all you can read is fish saved per year. 50 %, sweet, awesome, I'll vote for it, you know, so, but, you know, if it was like you were really looking at the changes the condition of the ecosystems and fish population, you know, it's

– I just

– I think it's kind of misunderstand the first [inaudible]. [St. Louis, MO, 8/4/10, pp.15]

***

M : When you look at that fish saved per year, how did you think about that in terms of all the fish out there
in the water?
R: I guess probably a pretty small part.
R: I watched this show on some history channel or something; they shot a boat that’s up in Alaska in the Bering Sea. They’re fishing for the fish tha t McDonald’s has for the fish Filet

- O

- Fish. They catch it with a net that’s 10 miles long. They haul this in and it’s bigger than this building when they pulled it on to the ship. They got to have 200 million fish inside of that net when they pulled it in because they were like thisAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 73 big. They’re catching this many fish every time they go out there and make Filet

- O

- Fish. [laughter] [Charlotte, NC, 9/8/10, pp. 7 ]



### 2.5.3 Government Regulation
A limited number of partici pants expressed general concern regarding more or less government regulation, but these concerns did not prevent participants from providing meaningful responses to choice questions. Some participants indicated that they were concerned about additional government regulations or the ability of the gover nment to regulate effectively

. However, these concerns were typically general and not tied to specific aspects of the policy options presented in the survey . Question 1 of the draft survey was revised based on participant feedback in order to eliminate con fusion regarding its meaning or the purposes of inquiring about respondent preferences regarding government regulation. Only one participant among all seven focus group sessions selected “I don’t trust government to fix the problem” in Question 7 as the re ason for choosing “No Policy” for choice questions. This suggests that participants’ general preferences regarding government regulation are unlikely to result in a large number of protest responses. While respondents may have preferences for more or less government regulation (as addressed in Question 1 of the current draft survey), focus group results suggest that these preferences would not prevent respondents from providing meaningful responses to the choice questions.

R: You know, following up on tha t, you asked if there were any cons, negatives, and other than price, there really was one in my mind, and that is government, which is getting bigger and bigger and bigger, and I’m very much in favor of smaller government, so that clearly was an issue as I was reading this

– R: Get rid of Congress.
R: Yeah, well, November second isn’t that far away. [Waltham, MA, 7/29/10, pp.15]

***

M: Other than what we’ve already discussed, were there particular types of information that you think might have affected how you answered this question?
R: I think most of us don’t trust the government today. I think had there been some comments about from the manufacturers and industrial users, it may have been a little more effective.
M: When you say “effective”, could y ou explain a little bit more what you mean by that?
R: I mean coming from the government, that’s like the IRS. “I’m from the IRS. I’m here to help you.” The same thing like this. Most of us don’t believe it. I think there’s a basic distrust of governm ent agencies.
M: When the rest of you were answering the survey, were you thinking about similar sorts of things or not?
R: The only thing I was thinking, and I know I’m being repetitive on this, is what would the job effect be?
R: That would be very simil ar to having a manufacturers. If they’re looking at it the same way, it would be one thing, but if they’re looking at it

– “Hey, if you’re going to regulate me too much, I’m closing up my
door.”
R: I was just wondering about the ultimate effect. It wasn’ t so much just jobs, but this is just looking at the going government policy and it always has a multiple effect, just like the ecocycle, or the ecosystems. It’s a tangled web of life we live. [Bethesda, MD, 8/18/10, pp.9]

***

M: I'd like to push on an d again I apologize. I go back to things 'cause I write notes and I want to make
sure to kind of revisit

–Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 74 [...]
R: I'm tired of spending money on government stuff myself, you know. Every time you turn around, they

want more.

R: I don't think that's true. [St. Louis, MO, 8/4/10, pp.10]

***

M: So I guess then the

— what I’d like to ask is: When you were answering these questions, say Question 4, where did you think these numbers came from?
R: Well, I mean, I think they’re somebody’s calculations of, you k now, somebody’s assessments or estimates of, you know, of what, you know, doing A is going to do to the system but like I said, you know, I think that’s

— you know, they could be great numbers. They could be absolutely excellent, but I don’t
have a lot of

— f irst of all, I don’t have a lot of faith in the government about anything at [ inaudible ], and you know, and certain, you know, skeptical about the numbers.
M: So is it fair to say you viewed these numbers, whether in Question 4, 5, as being pretty uncertai n?

R: Yeah. [East Providence, RI, 8/12/10, Interview #2, pp. 3]

***

M: So when you were answering the questions, were you thinking about how much money you might already be spending on the environment, you know, and the government might be spending on th e environment?

R: No.
M: So, you just kind of consider these policies on their own?
R: Yeah, I mean, again, I think because of my lack of knowledge as far as these issues, specifically fishing. I know I keep certain fish and family members fish, and I know businesses and all that, but I thought it was very interesting. [East Providence, RI, 8/12/10, Interview #5, pp.15]

***

M: Well, I mean, you know

– that's actually a good question. When you all were looking at that, were you thinking of government reg ulations in the context of the survey and fish and

– upon so were you thinking about government regulations more broadly on everything?
R: I think it's supposed to be assumed it's supposed to be about

– but I think he has a point, but I mean

— R: Well, I was trying to say that in a survey why won't people see govern

– I got to tell you, when I see government regulation it's the first thing that popped

– I mean I knew it was talking about this survey, I'm just telling you right now, the word government regu lations and society that [inaudible] goes along with
them. Means a lot.
M: Fair enough.
R: The phrase could be changed.
R: The phrase, right. If you changed

– [crosstalk]
M: So either way regardless it sounds like there's some concerns with that Part 5 and we will certainly look
at that.
R: Now, most times when government involves itself in some

– it's who's going to have to pay for it. That's

– I don't care what they

– do I have to pay for this or not? That's what it

– 'cause it affects a lot of peopl e, you know, and you start messing with people's income [inaudible]. [St. Louis, MO, 8/4/10, pp.6]Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 75



### 2.5.4 Cause of Losses
For some participants, the specific cause of losses was important

. S ome participants indicated that fish losses by human act ivities were m ore important than fish losses attributable to natural causes, mainly

because man

- made losses can be changed . A nothe r respondent’s suggested that the cause of losses is important because of the relevance to the policies evaluated in the survey

. Other parti cipants had mixed opinions about whether fish losses caused by human activities are more important that fish losses due to

natural causes.

M: And when you were thinking about fish saved per year and such, did it matter to you why they were lost
in the fir st place?
R: Why or how?
M: How, why, I mean, you know

— R: [inaudible]
M: Did that affect your answer? I mean if we had said we're talking about fish that are lost to natural causes like hurricanes, would that have

– would you have answered differently d o you think? Or

— ?

R: Mm

- hmm.

R: Yeah.

R: Well sure.

R: [inaudible] some other non

- natural cause, it wouldn't make any difference. It's just fish lost. [inaudible].
M: Is that the way with the folks we're looking at

– that the primary thing you were thi nking about was the effects on the fish and the ecosystems and it wasn't the specific cause that was important? Or was the specific cause important?
R: Specific cause is the issue that comes [inaudible] in my opinion.

M: So this

– so for you the specific reason why the fish were lost was relevant in terms of the answers you gave before?
R: Right.
R: Well I think it would have been addressed in the very beginning if it wasn't important. I mean, it just would've not addressed it or it would've said well, it could be because of hurricanes or

— R: [inaudible]

R: Tsunamis, or

– I mean, other non

- man

- made problems.
R: There's nothing we can do about natural causes. There is something we can do about the opposite.
R: This is a sample [inaudible] here. Does this cost money?

M: Got to do it.
R: I mean, we know what the problem is, it's very out

– it's outlined what the problem is. It can be fixed. It just costs money to do it. And who's going to pay for it? So, you know, it's a shame that it comes down to
that , but that's what it, you know, it's about. [St. Louis, MO, 8/4/10, pp.19]

***

M : Did you think it mattered how the fish were being lost? So we were talking about cooling water here. Do you think it mattered that they were lost by that means as compared to natural causes or any other way?
R: No, I mean doing this survey it was brought to my attention. I really didn't think about it previously. I know fish are lost by other means, but I wasn't thinking anything other than what I was looking at

.Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 76 M: So you weren't thinking about other types of policies that might affect the fish, so you work considering just what was in front of you?

R: No. [East Providence, RI, 8/12/10, Interview #5, pp.14]

***

M: What was going through your mind about; you got one very large change and then a bunch of small ones, did that make sense to you?
[...]
R: I refer it as these just being things that we just can’t prevent like they said, 100% if we didn’t have any influence on it, this is what will happen. That’s going to happen a nd then at commercial, you’re going to have commercial fish. I thought that those areas were just, those would be realistic because there’s not much you really can do about those but you can do a lot about the cooling system in saving the fish. [Charlotte , NC, 9/8/10, pp.6]



### 2.5.5 Geographic Concerns
Many participants indicated that they value protecting regional po pulations of fish more than they valued fishery resources outside of their region and participants tended to interpret the regions correctly.

However , the inclusion of both regional and national questions within a single draft survey was confusing to many participants while consequently adding addi tional length to the survey. Many respondents appeared to be thrown off by the change in scope and s ome ot her respondents were confused about the

re asons for differences in costs between regional and national programs . Some others thought that people in other regions should bear the costs of changes in their own region. This issue led to the exclusion of the

n ational questions from the regional surveys. Based on these comments, choice questions addressing national policies were excluded from the regional surveys in favor of a separate national survey questionnaire.

Some participants indicated that the specific facility locations within the region were important. Still other participants found the specific facility locations to be unimportant or did not notice their locations. Participants’ feedback also indicated that it was unnecessary to make a distinction bet ween saltwater and freshwater facilities within a given region, and that including both improves understanding of total effects within the region. Participants’ comments did not suggest that it was important for their choices to know manufacturer versus ge nerator locations and this distinction caused confusion among some participants when included within the map on Page 2 of draft survey versions

. The map was therefore revised to show “all facilities” in order to reduce the potential for confusion among res pondents.

M : If this had been a survey that in addition to dealing with you know just the northeast the green area here, imagine that this had been a survey where the green area was the entire United States so here and you know everywhere else Oregon and California, Florida, whatever. Would you have thought about the survey the same way? Or would you have thought about it differently?
R: I thought about it differently.
M: Could you explain a little bit?
R: Just like the gentleman said here about the cond ition in the Gulf and everything that happened with the oil drilling and things that’s going on with that that has an effect on the ecosystem even more so than this would. This is killing they’re saying a billion fish a year. How many fish did we lose wh en the oil spill in that? You know if they had a big [inaudible], this would ever happen in my opinion. I may be wrong but I think it did. So, it would make a big different when you’re talking about the whole country ‘cause you got to think about everyo ne. And maybe fishing is you know as you go further up northeast Main and Connecticut, you might get you know a little bit more. It’s colder water. There’s more fishing as far as for commercial for the rest of the country to use. So, you know you go do wn south you know in the Gulf ofAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 77 Mexico you’ll see more commercial fishing for us to use. Here people commercial fish but normally they’re fishing for themselves. There’s not a lot that’s going on right on the Jersey shore where it’s worried
about feedin g the whole country whereas in other places there will be.
R: It didn’t really

– I honestly looked at it the opposite. I think in the back of my mind I was already thinking of the U.S. as a whole. Because even though I only saw this chunk we all know it’ s a nationwide problem. So, in the back of my mind I’m thinking, oh, wow. This affects just the northeast this much. Imagine how much it’s affecting the rest of the U.S. So, I think in the back of my mind I was already assuming that it was a nationwide problem to begin with. And we were just kind of narrowing in on the northeast. We all know there’s generators and manufacturers all over the country. And they’re probably all using the same

– not all of them. But many of them are probably using the sa me sort of technology. So, I assumed this was just a chunk of the bigger problem.

M : And so, when you were answering say for on question 4 through 6, were you thinking you were affecting just the northeast or the whole country?

R: Just the northeast.

R: I like the map. To me I can relate better to it because I know those waterways just by living up here, the Chesapeake, the Delaware Bay, up by New York. So, I can relate to those rivers and inlets. But if they were like down in Georgia and southeast, I w ouldn’t know those waterways.
R: Well, we don’t have too much time left. And so, there’s just two quick questions that I’d like to ask ‘cause they’re on my list. This survey talks about fresh and salt water so kind of all waters on the map we’re talking about. Would it have been helpful to you if it had split out fresh and salt water effects. Here’s the effects in fresh water. Here’s the effects on salt water. Or was it OK the way it was kind of mixing those effects into one survey? What do you think ?
R: I was thinking more fresh water. I was thinking the industrial northeast all these plants along these rivers. I see it driving along the Schuylkill. I see, you see plants, if they’re operational anymore along the Schuylkill. And just the other day I could see water spewing out into the Schuylkill and I just thought that doesn’t look very good. So, my whole focus was the industrial northeast rivers and streams. It didn’t even
occur to me about the ocean and fresh vs. salt water.

R: To me it made n o difference because the waterways are interrelated. The Delaware River becomes the Delaware Bay. The Schuylkill River goes into the Delaware and the Delaware Bay goes into the Atlantic
Ocean.

M: How about other folks?

R: I don’t think it would make a d ifference.
R: It’d been nice to [inaudible].

R: It wouldn’t have made a difference for me. [Philadelphia, PA, 9/23/ 10, pp.18]

***

R: I think the way the survey was set up is an issue, because if I was to put that question in the front, my
answers would be completely different.
M: Could you explain why?
R: Well, because I wouldn’t know that the cost with a smaller population would be a lot less. I’ll be thinking on a national basis, start now, and then I would think, “Well, you know, maybe six dollars is not that much.”
R: Then you go back to there and you say, “Wait a minute, I got to cross off this

- ” [Waltham, MA, 7/29/10, pp.14]

***

M: Question 8. We’re bouncing around. Could you explain how you interpret that question and how you
answered it?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 78 R: Yeah, that one gave me a little [inaudible], but I answered toward the bottom there that I would be willing to pay between 101 and 200 percent more if the policies affected the entire United States. Quite frankly, I didn’t really understand that

— I mean I didn’t really

— I’m not sure I really thought that the concept, because if you’re spreading this out over the entire United States and everybody is paying, then the cost should be less, and

— but I also agree that I would have paid more if I were assured that

— if I could be assured that there would be significant changes or significant beneficial effects.
M: So just to reiterate, and please correct me

— R: This did give me a problem.
M: So basically you’re saying that if you were presented with a situation where it would, in fact, affect the whole United States and everything was above board and fair, that you would be willing to pay between 101 and 200 percent more, but it sounds like maybe you didn’t buy or

— that the dynamics whereby it
would be more

— R: Right. I couldn’t understand why. As a matter of fact, I think I did double

- takes and looked back, is it saying less 100 percent or 200 percent less? Or more? [East Providence, RI, 8/12/10, pp.6]

***

M : What are other comments on the pictures that were on th e survey?
R: I think it’s on page two, they were very good. I don’t get hung up on the numbers. With the food web, I couldn’t trace it but I understood the point they were making

. It made a point.

R: There was a variation with the dots because I was lookin g at this I would like to see where the generators were and...
R: There are a lot of generators on there. [laughter]

R: They are in blue and the manufacturers are blue as well. You can’t tell the difference. This looks like...
R: They all look good. [Several respondents agreed.]
M: The color in the legend is different from the color on the map?
R: Yes. I’m guessing that’s a generator that’s on a river. You have to really look at it, but you can’t tell the difference if you just look at the red, the charts and map. R: Yes, the rivers have that rectangular design maybe

. [laughter]
R: Those were the discrepancies in it...
R: I think rectangle’s on there.
R: They are, they’re up there.
R: Maybe that’s just...
R: I think they’re the customers.

R: Yes, the customers.

R: Those are manufacturers.
M: There is a little bit of confusion regarding the shapes and colors on the map.

R: Yes. [Charlotte, NC, 9 / 8 / 10, pp.12]

***

M : We talked a little bit about the pictures in the survey so far. I’d just like to ask a little bit more about that. And I guess in general what did you think about the pictures that were in the survey? Were they helpful to you in making good answers? Or were there any pictures that stood out as being particularly helpful or maybe particularly confusi ng?
R: I think it’s good there’s especially a map of our area because that made it more realistic that you know it effects our area like Philadelphia region specifically, so they were important.
M: And do you feel you had enough information on where the ef fects were gonna happen?Abt Associates Inc., J anuary 19, 2011 Focus Group Findings 79 R: Kind of.
R: Maybe?

R: I don’t know. [Philadelphia, PA, 9/23/10, pp.6]

***

M: Let me ask you, what did the rest of you

– I know that you didn’t even get to question five

– but for those of you who did

– or who got to the natio nal question, question eight, it’s now

– where it’s talking about natural versus northeast policies, there was just a comment that cost was more. How did you interpret that, what did you think about that?
R: I couldn’t believe how much more we had to pay w hen a larger sum of people came into the

– R: [crosstalk]
R: It’s like Massachusetts covering the rest of the country.
R: Exactly.

R: Taxachusetts.

R: [crosstalk]
R: Maine has foreclosures, Florida has foreclosures, you know.

R: [crosstalk, crosstalk]

M: S o how did you vote for question eight, then?

R: I voted no.

R: I voted no.

R: I shut it down.
R: Yeah. [Waltham, MA, 7/29/10, pp.13]



### 2.5.6 Importance of Protecting Aquatic Ecosystems Compared to Other Issues
The majority of participants thought that protectin g aquatic ecosystems is at least somewhat important compared to other issues that the government might address, with many indicating that it is import ant or very important. Question 2 was revised within the draft survey to compare “protection of aquatic

ec osystems” more generally to “other issues that the government might address

– such as public safety, education, and health”, in order to prevent confusion among participants regarding the question’s purpose. The majority of participants rated protecting aq uatic life and habitat” as at least somewhat important with many participants selecting “very important” and very few participants selecting “not important”. Multiple participants stated that they view improvements of aquatic ecosystems as an important iss ue without directly comparing it to other issues the government might address. Some also raised the economy and jobs as important issues, and some described fish losses and related regulations in the

context of these issues.

M: Actually skip ahead to page 6. It's question 2 in the middle where it says "Compared to other issues that the government might address such as public safety, education, and health. How important is protecting a part of ecosystems here." So how did you respond on that one?

R: I pu t the second

— number 4, which is "almost very important."
M: So were you thinking about other issues when you're completing the survey at all?
R: [inaudible] go through the survey I was thinking about tourism in Rhode Island, and take New England [inaudible ], we are a very tourist area. One of the big reasons because we're an ocean state. We're so close to the beaches, and we have beautiful beaches and waterfronts and so forth. And that's being depleted. Our ecosystems are being damaged, and no tourist w ants to go to an area where it's polluted. No tourists areAbt Associates Inc., J anuary 19, 2011 Focus Group Findings 80 going, you know, get a hotel room next to a lake or whatever that smells of rotting whatever, you know, fish or a beach front area that's damaged. So that definitely plays into my mind. And, you know, I love snorkeling, and I love being outdoors especially. I'm a beach guy so that plays heavily into my influence. I don't think we do enough for our ecosystems [inaudible].
M: So you were pretty much focused on the aquatic ecosystems and fish and things like that?
R: Yes. [East Providence, RI, 8/12/10, Interview #1, pp.3]

***

M: Turning, then, I guess, to question two, which is this page right here, could you tell me how you reacted to that question, how you answered it?

R: Almost all of it was important. I’m not a big aquatic

— I’m not a fisherman or anything like that, so to me that was the only one that was somewhat important. The rest of them, reducing my cost, is very important.

R: Why would they put reducing taxes as a questions in here? I me an, I’m just asking. Is that just a trick question?

M: I’m going to not answer that. [crosstalk] I’ll happily answer anything after we’re done.

R: It’s just kind of weird to have that thrown in.

R: The only thing I wasn’t sure was the homeland security lin k. I feel like that one’s kind of thrown in.

R: That’s the same thing as reducing taxes. Does that pertain to what we’re talking about here? I don’t
know.

R: I put not important on both. Where are the control questions? [crosstalk]

R: We live on the water, so I’m concerned about all of it. I have children that are in the water, and so very important. [East Providence, RI, 7/21/10, pp.6]

***

M: And what about the rest of you? Other thoughts on what kind of the pros or the benefits for voting for
one of th ese options might be?
R: Well, I suppose that the population obviously continues to grow, therefore what we have now isn’t necessarily going to be enough in the future, so therefore you have to do something to try to protect and preserve that, but it’s sup ply and demand, I suppose.
R: And also, you have to look at the employment factor. This industry employs a lot of people, and if you start losing fish population, you’re going to lose a lot more jobs.
M: Now when you say “this industry,” which

–
R: The fis hing industry.
R: Just ask the people in the Gulf right now.
R: That’s right. And it’s not just the fishermen, it’s the restaurateurs, it’s the waiters, it’s the whole economy, [inaudible] and everything. [Waltham, MA, 7/29/10, pp.13]

***

M: What's that ? No, please.
R: Sort of the same thing. I just want to know cost, whether more jobs would be created by [inaudible] equipment, manufacturing equipment, monitoring equipment

– take care of the equipment, you know, would there be some job creation in this cost? Because that's

— M: And when you say equipment

— R: Well, the filters, the, you know, monitoring equipment, whatever is necessary to have the, you know, this fully implemented. Would there still be job creation? [St. Louis, MO, 8/4/10, pp.3]