This document provides an overview of the challenges facing US submarine museums. It discusses the contributions of US submarines in WWII and how many were scrapped shortly after. It then outlines some of the financial, environmental, and legal issues facing modern submarine museums, including preservation costs, hazardous materials, and regulatory compliance. The document also discusses factors contributing to the success of some museums, such as location and community support, and failures of others due to mismanagement, neglect, or weather damage. It concludes by discussing considerations for preserving these historic vessels in the future.

1. 1
Echoes of the Silent Service
Michael Bennett
HIST300: Research Methods in History
February 15, 2015

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Introduction
Submarine museums are scattered all throughout the United States – from Hawaii to New
Hampshire. These grey sentinels symbolize the legacy of a time long gone and offer a glimpse of
the last remaining artifacts of the efforts and leadership of men and women during some of the
most influential events in recent history. Although their battles in times of war have been won,
they continue to be involved in another fight – this one against nature, politics, carelessness, and
greed. Therefore, preservation of these historic vessels should remain the primary motivation
behind the actions and motivation of submarine museum staff.
In Service
The contributions of U.S submarines in the Pacific Theater of Operations during the
Second World War epitomized Sun Tzu’s writings and only after the war properly documented
and realized. Two hundred, eighty-eight1 American submarines sank a over five million tons2 of
Japanese merchant shipping and accounted for over 55% of all enemy shipping destroyed within
four years3. Almost immediately following the surrender of Japan on September 2, 1945, these
low grey predators of the Pacific began the long trip back to ports on the East and West coast of
the United States for decommissioning and, for some, almost immediate decommissioning and
destruction. Other boats, as submarines are referred to, were to be modified for special post war
use, but these too were not spared from the shipbreaker’s yards.
1 Theodore Roscoe, United States Submarine Operations in World War II (US Naval Institute Press, 1949), 493
2 Ibid., 491
3 Ibid., 491

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Under Title 10, United States Code, Section 73064, significant vessels may be obtained
by 501(c) 3 non-profit organizations in order to promote, commemorate, and safeguard naval
heritage and history for future generations. Receiving a donated vessel, however, brings the
responsibility for maintaining the ship “in a manner that does not disrespect the veterans that
served on these ships or the proud traditions and heritage of the U.S. Navy”5. While the
organization or individual associated with the operation of a historic ship “assumes title to the
vessel and all ownership costs”6, the responsibility of improperly displayed or operated ships
ultimately rests with the Navy7 due to the fact that the reasonable standards and expectations
understood in the process of applying for and receiving the stewardship of such vessels exist as a
framework for not just honor of the past but for the safety of the present and future.8
Issues - Financial
By the definition of the Internal Revenue Service, any organization classified as a non-
profit must be “organized and operated exclusively for exempt purposes forth in section
501(c)(3), and none of its earnings may inure to any private shareholder or individual”9.
Misleading as it is, the term non-profit in the case of museum ships fails to capture the realities
and necessities for the operation and preservation of these vessels. According to fundraising
publications available online, the 2014 dry-docking budget detail for one such museum ship, the
4 SEA 21 Navy Inactive Ships Office, Ship Donation Program accessed February 13, 2015,
http://www.navsea.navy.mil/teamships/Inactiveships/Donation/default.aspx
5 Ibid.
6 Ibid.
7 Historic Naval Ships Association,“FAQ: So You Want a Historic Ship”, accessed February 13, 2015,
http://archive.hnsa.org/handbook/faq.htm
8 Ibid.
9 Internal Revenue Service, “Exemption Requirements - 501(c)(3) Organizations,” accessed February 15, 2015
http://www.irs.gov/Charities-&-Non-Profits/Charitable-Organizations/Exemption-Requirements-Section-
501%28c%29%283%29-Organizations

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USS Pampanito, was estimated to be $500,00010. These costs covered much needed repairs
which were impossible to effect as the ship is moored in San Francisco bay and is only able to be
dry-docked once every seven years11. For ships like the USS Drum, taken out of the corrosive
environment of Mobile Bay in 2001at a cost of $1.4 million12, the costs of continuing restoration
due to exposure to salt, sediment, and wave action are often out of pocket at times for selfless
volunteers or from donations in the form of materials and equipment from local businesses.
Issues - Environmental
Sea-going ships produced during the Second World War were developed long before
concerns about the environment and health drove industrial safety practices of today. Asbestos,
lead, oil for lubrication and fuel, hydraulic fluids and even radioactive material may be found on
the ships not yet deemed suitable for display, and even for the ships open for tours such as the
USS Clamagore, the presence of the lead-acid storage batteries poses the requirement for trained
personnel and proper facilities for handling and disposal13. As Weiner points out the concerns for
the USS Ling in New Jersey were not the threat posed to the local environment and resources, but
the “protection of staff, volunteers, and the public from these and other harmful materials and
substances”14.
Issues - Legal
10 San Francisco Maritime National Park Association,“Help Support the USS Pampanito,” accessed February 15,
2015 http://maritime.org/pampanito2014.pdf , 1
11 Ibid, 3
12 USS Drum (SS-228), “The Move to Land,” accessed February 15, 2015, http://www.drum228.org/history.html
13 Clamagore Restoration and Maintenance Association,“Business Plan to Save and Relocate the USS Clamagore
SS-343”, accessed February15,2015,
http://www.savetheclamagore.com/CLAMAGORE%20Business%20Plan%20v3.pdf, 5.
14 Weiner, Seth I. (2012). Save our Ships: The Viability of Naval Vessels as MuseumExhibitions. Retrieved
February 13, 2015, from http://scholarship.shu.edu/cgi/viewcontent.cgi?article=2835&context=dissertations p. 41

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Considerations for the legal aspect of operating and maintaining a museum sub range
from the protection of history to the protection of the visitors on board. Guidelines set forth by
the Office of the Secretary of the Interior, while not legally binding, are in place “to assist in
assist individual vessel owners in formulating plans for management of historic vessels in a
manner consistent with the intent of the standards”15. However, the laws set forth by the IRS as
to the proper reporting and record-keeping for non-profit organizations are more firm in the
expectations of conduct. Likewise, the regulatory boundaries established by the Environmental
Protection Agency, U.S Coast Guard, as well as the local City and State laws dictate daily
operations as well as access to compartments requiring the use of ladders. Insurance coverage for
historic access to ships such as the USS Cod, in Cleveland, Ohio may be different for the USS
Pampanito in San Francisco, California for example16, resulting in entirely different experiences
for visitors and logistical planning for staff.
Successes
Location drives the definition of success for three of the museum boats – the USS Cod,
USS Pampanito, and the USS Bowfin. With easy access to large metropolitan areas – Cleveland,
Ohio, San Francisco, California, and Honolulu, Hawaii, respectively – these museums maintain a
steady flow of visitors as well as proximity to organizations and individuals willing to donate
time and money towards restoration efforts. In the case of the USS Cod, the relationship with the
residents of Cleveland was forged in 1959 when the Navy Reserve relocated the submarine there
15 U.S. Department of the Interior, National Park Service National Maritime Initiative, “The Secretary of the
Interior’s Standards for Historic Vessel Preservation Projects with Guidelines for Applying the Standards,” 1990
accessed February15, 2015, http://archive.hnsa.org/standard.pdf,13.
16 San Francisco Maritime National Park Association “USS Pampanito Volunteer Manual 2010”
http://www.maritime.org/pres/pampvolunteer.pdf, 2-2.

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in order to facilitate the education and training of reservists in the city17. Also key to promoting
continual nationwide public interest in the USS Cod is the fact that it remains the only museum
submarine of its class which has not been altered for visitor ease of access, requiring entry and
exit through the original hatches18 Although altered in this sense, the USS Pampanito received
recognition in the 1995 movie Down Periscope19, and the preservation, documentation, and
promotion of this museum boat showcases the results effective promotion for the cause of
preservation. Likewise, the USS Bowfin benefits from being not only within line of sight of the
same piers it departed from on wartime patrols, but also within view of the USS Arizona
Memorial, and the USS Missouri. These three locations capture the beginning, continuation, and
end of the United States’ involvement in the Pacific Theater of Operations during the Second
World War. The performance of these three submarine museums therefore could be linked to not
just location, but to strong ties within the local community as well as effective promotion and
endorsement.
In Peril
It is important to note that location does not always guarantee success for submarine
museums. Located in Charleston, South Carolina, the USS Clamagore has fallen into such a state
of disrepair due to the negligence of previous leadership that actions were underway as recently
17 Hon. Dennis Kucinich. “In Recognition of the U.S.S. Cod’s 50 Years in Cleveland” Congressional Record
Volume 155, Number 13 accessed March 1, 2015, http://www.gpo.gov/fdsys/pkg/CREC-2009-09-29/html/CREC-
2009-09-29-pt1-PgE2386-3.htm
18 National Parks Service Form 10-900. United States Department of the Interior National Park Service National
Register of Historic Places Inventory Nomination Form May 1985 accessed March 1, 2015,
http://pdfhost.focus.nps.gov/docs/NHLS/Text/86000088.pdf
19 San Francisco Maritime National Park Association,“Welcome to USS Pampanito (SS-383)!” accessed February
28, 2015, http://www.maritime.org/pamphome.htm

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as 2013 to scuttle the museum boat in an effort to make an artificial reef20. Efforts by veterans in
Tennessee to relocate the USS Clamagore to Knoxville21, however, offer a glimpse of the
dedication of former sailors and other preservation-minded service members and citizens to
prevent the loss of one museum boat. Leadership issues also plagued the USS Torsk – the
submarine responsible for the last American submarine attack of the war22 - in Baltimore,
Maryland. In April of 2014, a standoff developed between Torsk Volunteer Association -
responsible for performing maintenance and repairs on the boat - and the museum staff over
paperwork requirements, and differences of opinions. Lastly, the USS Ling, located in
Hackensack, New Jersey, suffered damage to the meager museum facility during Hurricane
Sandy in 201223, and as of February 2013, was “financial distress” and threatened by
encroaching development 24with no long-term plans for either relocation or improvement to the
existing museum.
Failures
While not an American submarine with the distinction of serving in the Second World
War, the fate of the former Soviet submarine, K-77, serves as an ominous reminder of the
precarious relationship between weather and these floating museums. In April of 2007, a storm
and associated tidal surges flooded the unoccupied submarine through openings made for ease of
20 Abigail Darlington. “Rusting Clamagore Sub at Patriots Point Likely to Become a Marine Reef”. The Post and
Courier November 1, 2013. accessed February 28, 2015,
http://www.postandcourier.com/article/20131101/PC05/131109858
21 Raymond Owens. “Knoxville Veteran Trying to Bring USS Clamagore to East Tennessee”. News 2. August 21,
2014. accessed February 28, 2015, http://www.counton2.com/story/26284107/knoxville-veteran-trying-to-bring-uss-
clamagore-to-east-tennessee
22 Don Moore. “USS Torsk, only sub to sink train in World War II”. Blog. December 20, 2010. accessed February
28, 2015, http://donmooreswartales.com/2010/12/20/don-lichty/
23 Hannan Adely. “Navy museum remains closed,seeks funding for repairs”. The Record. February 22, 2013.
accessed February 28, 2015, http://www.hackensacknow.org/index.php?topic=2626.0
24 Ibid.

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access25, sinking her at her berth. The K-77 was refloated fifteen months after sinking, but
according to Carey, there was “no economically reasonable option to pursue other than to
dispose of the boat for its scrap salvage value”26, and the submarine was scrapped. Another
noteworthy failure, the USS Cabot was an aircraft carrier acquired in 1989 and slated for
conversion to a museum ship in Kenner, Louisiana27, shortly thereafter. Mismanagement and
neglect by the owning non-profit organization, the U.S.S. Cabot Dedalo Museum Foundation,
Inc., resulted in damage to facilities where the ship was moored, environmental contamination,
and a legal battle lasting a decade and resulting in the ship being scrapped28. Both of these
examples offer possible outcomes for poorly managed and funded museum boats of all types.
Future
One of the bigger considerations for conservation for these museum boats is the fact that
most remain afloat and the watertight integrity of these vessels is threatened by corrosion and
extremes of weather. Preservation in water is difficult and requires frequent dry-docking in order
to clean, inspect, and reapply protective coatings to portions of the hull not accessible when
moored in place. An alternative to this frequent preventive maintenance is to beach the
submarine on land, much like the USS Batfish and USS Drum, in Mobile, Alabama. While the
appeal of visiting a ship still afloat generates interest in visitors and potential donors alike, the
increased maintenance costs, vulnerability to extremes of weather, and loss of revenue for times
when the central attraction to a submarine museum is inaccessible in a dry-dock is a major
consideration for museum boats afloat. Likewise, the perils of weather typically do not effect
25 Christopher Carey. “A Cold Warrior’s Final Patrol: Russian Submarine K-77”. accessed February 28, 2015,
http://webs.lanset.com/aeolusaero/Articles/A_Cold_Warrior_13-Mar-10.pdf
26 Ibid.
27 United States Court of Appeals, Fifth Circuit. 297 F. 3d 378 - United States v. Ex-Uss Cabot/Dedalo. accessed
February 28, 2015, http://openjurist.org/297/f3d/378/united-states-v-ex-uss-cabotdedalo
28 Ibid.

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museums boats on land, they too are subject to the elements and in need of frequent, yet much
easier, inspection and repair. Both of these considerations are critical for preserving these vessels
for future generations.
An often underrated, yet critical component to the success or failure of a museum is the
Operations side of any museum. Typical of job descriptions of the position of “Museum
Operations Manager”, East Tennessee University Office of Human Resources lists core values of
“people, relationships, diversity, excellence, efficiency, and commitment”. 29 The importance of
the Operations function of museum management is emphasized by Boylan in that due to
decentralization of these administrative functions, much of the responsibilities of the day to day
functions now rest with senior staff and upper management.30 Regardless of location, with poor
operational relevance, presence, and drive, Tannenbaum writes, “these factors can be completely
wiped out if a museum-ship organizatioan lacks vision, professionalism, and accepted business
and fiscal practices”.31
Fundraising, the most important part of operating a non-profit organization, is the life-
blood of any museum. Parman writes that, “with public perception at an all-time low, practicing
ethical fund raising has never been more important as an organizations' reputation directly relates
to donors' trust”.32 This trust, critical to the viability of these museums, not only generates
income for the staff and capital for continued operations, but establishes an identity and a cause
for promoting the legacy of the museum as well as potential donors of money, resources, or
29 East Tennessee University. The Office of Human Resources. Job Description: MuseumOperations Manager.
February 2012. accessed February 28, 2015, http://www.etsu.edu/humanres/jobdescriptions/admin/235210.aspx
30 Patrick Boylan. “Running a Museum: A Practical Handbook”. ICOM – International Council ofMuseums. 2004.
viii accessed February 28, 2015, http://unesdoc.unesco.org/images/0014/001410/141067e.pdf
31 Fred Tannenbaum. "In Contact." Naval History 26, no. 4 (08, 2012): 8-9, accessed March 2, 2015,
http://search.proquest.com.ezproxy1.apus.edu/docview/1023459346?pq-origsite=summon
32 Kelsey Parman. Practicing Ethical Fundraising in Museums. 10. accessed February 28, 2015,
http://scholarship.shu.edu/cgi/viewcontent.cgi?article=2899&context=dissertations

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facilities. Part of the process of fundraising is the financial planning for not just the present, but
the future, and as Tannenbaum described, “the wise operations are the ones planning ahead and
saving, rather than waiting for issues to reach the crisis state”.33
The next generation of volunteers, staff, and donors are currently visiting and watching
these precious few museum boats. From the nine year-old showing interest by poising the candid
question as to whether or not the submarine will be around for his kids to see, to the student
inspired by stories of bravery and determination, to the fourth-generation submariner with a
direct connection to these silent relics of a time long past, the preservation of these vessels
transcends all present issues. Dawson addresses the schoolchildren of today in stating that “they
are far from passive consumers, and unless you allow them to be active in engaging with content,
you will lose them”.34 Engaging the child of today is involving the adult of the future, and for
any museum to be successful in the present, the investment is in the future.
It is my opinion, therefore, that “success” and “failure” of submarine museums cannot be
readily measured in definitions of present terms. The end goal of these museums is not a “finish
line” type goal, nor is it merely measured in a numerical figure of dollars or visitors per year.
Instead, the goal is to have the stories, equipment, and vessels outlast the current caretakers much
like they have remained long after the men who forged, maintained, and sailed on them into
history. It is the responsibility of the museum staff to prevent ego, unethical behavior, and
carelessness from compromising the integrity of the stories which are waiting to be told
Material artifacts will always contest the slow decay which time brings. It is the charge of
modern society to prevent or delay this inevitable process to safeguard the links to its past for the
33 Ibid. 31
34 Ross Dawson. “ Thinking about the future of museums: fourteen key issues”. Trends in the Living Networks.May
22, 2008. accessed February 28, 2015, http://rossdawsonblog.com/weblog/archives/2008/05/thinking_about.html

11. 11
educational and cultural benefits for future generations. Therefore, with utmost care and
reverence in both action and motivation should these historic vessels be treated submarine
museum staff. Once the tangible proof of history is lost, there is no way to get it back.

12. 12
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13. 13
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http://www.etsu.edu/humanres/jobdescriptions/admin/235210.aspx
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U.S.S. Cod’s 50 Years in Cleveland” accessed March 1, 2015,
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PgE2386-3.htm
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Organizations/Exemption-Requirements-Section-501%28c%29%283%29-Organizations.
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accessed February 28, 2015, http://donmooreswartales.com/2010/12/20/don-lichty/
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14. 14
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http://www.counton2.com/story/26284107/knoxville-veteran-trying-to-bring-uss-
clamagore-to-east-tennessee
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accessed February 15, 2015 http://maritime.org/pampanito2014.pdf.
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accessed February 28, 2015, http://www.maritime.org/pamphome.htm
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Secretary of the Interior’s Standards for Historic Vessel Preservation Projects with

15. 15
Guidelines for Applying the Standards,” 1990 accessed February15, 2015,
http://archive.hnsa.org/standard.pdf.
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states-v-ex-uss-cabotdedalo
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Weiner, Seth I. (2012). Save our Ships: The Viability of Naval Vessels as Museum Exhibitions.
accessed February15,2015,
http://scholarship.shu.edu/cgi/viewcontent.cgi?article=2835&context=dissertations.