USS Pueblo (AGER-2) is a Banner-class technical research ship, placed into service during World War II, then converted to a spy ship in 1967 by the United States Navy. She gathered intelligence and oceanographic information, monitoring electronic and radio signals from North Korea. On 23 January 1968, the ship was attacked and captured by a North Korean vessel, in what became known as the "Pueblo incident".
The seizure of the U.S. Navy ship and her 83 crew members, one of whom was killed in the attack, came less than a week after President Lyndon B. Johnson's State of the Union address to the United States Congress, a week before the start of the Tet Offensive in South Vietnam during the Vietnam War and three days after 31 men of North Korea's KPA Unit 124 had crossed the Korean Demilitarized Zone (DMZ) and killed 26 South Koreans and 4 Americans in an attempt to attack the South Korean Blue House (executive mansion) in the capital Seoul. The taking of Pueblo and the abuse and torture of her crew during the next eleven months became a major Cold War incident, raising tensions between western and eastern powers.
North Korea stated that Pueblo deliberately entered their territorial waters 7.6 nautical miles (14 km) away from Ryo Island, and that the logbook shows that they intruded several times. However, the United States maintained that the vessel was in international waters at the time of the incident and that any purported evidence supplied by North Korea to support its statements was fabricated. Pueblo remains held in North Korea, officially a commissioned vessel of the United States Navy.
Since early 2013, the ship has been moored along the Pothonggang Canal in Pyongyang and is displayed there as a museum ship at the Victorious War Museum. Pueblo is the only ship of the U.S. Navy still on the commissioned roster and held captive.
Initial operations
The ship was launched at the Kewaunee Shipbuilding and Engineering Company in Kewaunee, Wisconsin, on 16 April 1944, as the United States Army Freight and Passenger (FP) FP-344. The Army later redesignated the FP vessels as Freight and Supply changing the designation to FS-344. The ship, commissioned at New Orleans on 7 April 1945, served as a Coast Guard–manned Army vessel used for training civilians for the Army. Her first commanding officer was Lt. J. R. Choate, USCGR, succeeded by Lt. J.G. Marvin B. Barker, USCGR, on 12 September 1945. FS-344 was placed out of service in 1954.
In 1964 the Department of Defense became interested in having smaller, less expensive, more flexible and responsive signals intelligence collection vessels than the existing AGTR and T-AG vessels. The mothballed light cargo ships were the most suitable existing DOD ships, and one was converted to USS Banner in 1964 and began operations in 1965. Banner's mission was to surveil high-frequency electronic emissions with line-of-sight propagation requiring operating closer to shore than previous intelligence gathering missions. Banner was unarmed, but the crew were issued five M1911 pistols and three M1 Garand rifles. Banner was confronted by Soviet Navy ships while operating off the Pacific coast of the Soviet Union. These ships would sometimes display international signal flags meaning: "Heave to or I will fire," but Banner kept steaming with scrupulous attention to International Regulations for Preventing Collisions at Sea. Soviet recognition of possible American reciprocity against Soviet ships on similar missions discouraged attacks.
FS-344 was transferred to the United States Navy on 12 April 1966 and was renamed USS Pueblo (AKL-44) after Pueblo and Pueblo County, Colorado on 18 June. Initially, she was classified as a light cargo ship for basic refitting at Puget Sound Naval Shipyard during 1966. As Pueblo was prepared under a non-secret cover as a light cargo ship, the general crew staffing and training was on this basis, with 44% having never been to sea when first assigned. Installation of signals intelligence equipment, at a cost of $1.5 million, was delayed to 1967 for budgetary reasons, resuming service as what is colloquially known as a "spy ship" and redesignated AGER-2 on 13 May 1967. The limited budget for conversion caused disapproval of several improvements requested by the prospective commanding officer, Lloyd Bucher. Requested engine overhaul was denied despite Banner's experience of drifting for two days unable to communicate following failure of both engines on patrol. A requested emergency scuttling system was denied, and Bucher was subsequently unable to obtain explosives for demolition charges. Replacement of burn barrels with a fuel-fed incinerator to allow speedy destruction of classified documents was denied. After Bucher's subsequent request to reduce the ship's library of classified publications was similarly denied, he was able to purchase a less capable incinerator using some discretionary funds intended for crew comfort. Following the USS Liberty incident on 8 June, Vice Chief of Naval Operations (VCNO) Horacio Rivero Jr. ordered that no Navy ship would operate without adequate means of defending itself. VCNO staff directed the shipyard to install a 3-inch/50-caliber gun on Pueblo's main deck with provisions for ammunition storage, but Bucher successfully argued against such installation because of reduced ship stability by addition of weight above the main deck. After testing and deficiency rework Pueblo sailed from the shipyard on 11 September 1967 to San Diego for shake-down training.
When the unarmed Pueblo reached the U.S. Navy base at Yokosuka, Japan, the commander of United States Naval Forces Japan directed the ship to take two M2 Browning .50 caliber machine guns as a substitute for the missing deck gun. In the limited time available for training, ten of the ship's crew fired five rounds each. Bucher opted to mount these guns in exposed positions on the bow and stern to keep them as far as possible from his position on the bridge. These positions eliminated possible use of the ship's superstructure to protect the gunners and conceal the guns and ammunition service lockers. The exposed guns, with no nearby ammunition supply, were disguised under canvas covers which became rigid with frozen spray.
Pueblo incident
On 5 January 1968, Pueblo left Yokosuka in transit to the U.S. naval base at Sasebo, Japan; from there she left on 11 January 1968, headed northward through the Tsushima Strait into the Sea of Japan. She left with specific orders to intercept and conduct surveillance of Soviet Navy activity in the Tsushima Strait and to gather signal and electronic intelligence from North Korea. Mission planners failed to recognize that the absence of similar North Korean missions around the United States would free North Korea from the possibility of retribution in kind which had restrained Soviet response. The declassified SIGAD for the National Security Agency (NSA) Direct Support Unit (DSU) from the Naval Security Group (NSG) on Pueblo during the patrol involved in the incident was USN-467Y. AGER (Auxiliary General Environmental Research) denoted a joint Naval and National Security Agency (NSA) program. Aboard were the ship's crew of five officers and 38 enlisted men, one officer and 37 enlisted men of the NSG, and two civilian oceanographers to provide a cover story.
On 16 January 1968, Pueblo arrived at the 42°N parallel in preparation for the patrol, which was to transit down the North Korean coast from 41°N to 39°N, and then back, without getting closer than 13 nautical miles (24 km) from the North Korean coast, at night moving out to a distance of 18 to 20 nautical miles (33 to 37 km). This was challenging as only two sailors had good navigational experience, with the captain later reporting, "I did not have a highly professional group of seamen to do my navigational chores for me."
At 17:30 on 20 January 1968, a North Korean modified SO-1 class Soviet style submarine chaser passed within 4,000 yards (3.7 km) of Pueblo, which was about 15.4 nautical miles (28.5 km) southeast of Mayang-do at a position 39°47'N and 128°28.5'E.
In the afternoon of 22 January 1968, the two North Korean fishing trawlers Rice Paddy 1 and Rice Paddy 2 passed within 30 yards (27 m) of Pueblo. That day, a North Korean KPA Special Operations Force unit made an assassination attempt at the Blue House executive mansion against South Korean president Park Chung Hee, but the crew of Pueblo was not informed.
According to the American account, the following day, 23 January, Pueblo was approached by a submarine chaser and her nationality was challenged; Pueblo responded by raising the U.S. flag and directing the civilian oceanographers to commence water sampling procedures with their deck winch. The North Korean vessel then ordered Pueblo to stand down or be fired upon. Pueblo attempted to maneuver away, but was considerably slower than the submarine chaser. Several warning shots were fired. Additionally, three torpedo boats appeared on the horizon and then joined in the chase and subsequent attack.
The attackers were soon joined by two Korean People's Air Force MiG-21 fighters. A fourth torpedo boat and a second submarine chaser appeared on the horizon a short time later. The ammunition on Pueblo was stored below decks, and her machine guns were wrapped in cold-weather tarpaulins. The machine guns were unmanned, and no attempt was made to man them. An NSA report quotes the sailing order:
( ... ) Defensive armament (machine guns) should be stowed or covered in such manner so that it does not cause unusual interest by surveyed units. It should be used only in the event of a threat to survival ( ... )
and notes:
In practice, it was discovered that, because of the temperamental adjustments of the firing mechanisms, the .50-caliber machine guns took at least ten minutes to activate. Only one crew member, with former army experience, had ever had any experience with such weapons, although members of the crew had received rudimentary instructions on the weapons immediately prior to the ship's deployment.
U.S. Navy authorities and the crew of Pueblo insist that before the capture, Pueblo was miles outside North Korean territorial waters. North Korea claims that the vessel was well within North Korean territory. The Pueblo's mission statement allowed her to approach within a nautical mile (1,852 m) of that limit. However, North Korea describes a 50-nautical-mile (93 km) sea boundary even though international standards were 12 nautical miles (22 km) at the time.
The North Korean vessels attempted to board Pueblo, but she was maneuvered to prevent this for over two hours. The submarine chaser then opened fire with a 57 mm cannon and the smaller vessels fired machine guns, injuring Signalman Leach in his left calf and upper right side. Captain Bucher, too, received slight shrapnel wounds, but they were not incapacitating. The crew of Pueblo then began destroying sensitive material. The volume of material on board was so great that it was impossible to destroy it all. An NSA report quotes Lieutenant Steve Harris, the officer in charge of Pueblo's Naval Security Group Command detachment:
( ... ) we had retained on board the obsolete publications and had all good intentions of getting rid of these things but had not done so at the time we had started the mission. I wanted to get the place organized eventually and we had excessive numbers of copies on board ( ... )
and concludes:
Only a small percentage of the total classified material aboard the ship was destroyed.
Radio contact between Pueblo and the Naval Security Group in Kamiseya, Japan had been ongoing during the incident. As a result, Seventh Fleet command was fully aware of Pueblo's situation. Air cover was promised but never arrived. The Fifth Air Force had no aircraft on strip alert, and estimated a two-to-three-hour delay in launching aircraft. USS Enterprise was located 510 nautical miles (940 km) south of Pueblo, yet her four F-4B aircraft on alert were not equipped for an air-to-surface engagement. Enterprise's captain estimated that 1.5 hours (90 minutes) were required to get the converted aircraft into the air.
Eventually the shelling forced Pueblo to stop, signal compliance, and follow the North Korean vessels as ordered. Pueblo stopped again immediately outside North Korean waters in an attempt to obtain more time for destroying sensitive material, but was immediately fired upon by the submarine chaser, and a sailor, fireman Duane Hodges, was killed, after which Pueblo resumed following the North Korean vessels. The ship was finally boarded at 05:55 UTC (2:55 pm local) by men from a torpedo boat and the submarine chaser. Crew members had their hands tied and were blindfolded, beaten, and prodded with bayonets. Once Pueblo was in North Korean territorial waters, she was boarded again, this time by high-ranking North Korean officials.
The first official confirmation that the ship was in North Korean hands came five days later, 28 January 1968. Two days earlier, a flight by a CIA A-12 Oxcart aircraft from the Project Black Shield squadron at Kadena, Okinawa, flown by pilot Jack Weeks, made three high-altitude, high-speed flights over North Korea. When the aircraft's films were processed in the United States, they showed Pueblo to be in the Wonsan harbor area surrounded by two North Korean vessels.