The merchant marine, then at almost its lowest point, was not in a position entirely to fill the need.

The United States had no extensive store of munitions.

Over all operations there hung a cloud of uncertainty.

Except for the short campaign of the Chino-Japanese War of 1894, modern implements of sea war remained untested.

Scientific experiment, valuable and necessary as it was, did not carry absolute conviction regarding efficient service.
Would the weapons of offense or defense prove most effective?
Accidents on shipboard and even the total destruction of vessels had been common to all navies during times of peace.