9-11 Museum: $25 fee to get in for survivors too?

My 1980's Empire State Building view of the World Trade Center.

     Building the 9-11 Museum at Ground Zero has been a hugely complex process, from a design and political standpoint.
     Money for it has come from private sources.   
     Now the 2014 official opening is within sight, and the board of directors is considering an entrance fee as high as $25.
     Relatives of those who died in the attack on the World Trade Center are not amused.

     Yet money to operate the museum has to come from somewhere! A free annual pass for the relatives has been proposed, but I can just imagine the bureaucracy involved in that enterprise! "Your great-Uncle died? Your second-cousin? You were treated for PTSD from being in the building?" Who is told no?

     I'm sure there is a political and fiscal solution out there somewhere, but it's probably not going to be easy or make everybody happy.

     The Holocaust Museum in D.C. would obviously have faced the same dilemma if they had imposed a fee (they don't). "My Grandmother died in the camps and you want me to pay to get in?" But that museum does have a pass system to control the crowds. And perhaps that--along with a well marked donation solicitation on the way out--could be a part of the answer to the 9-11 solution?
     Could they sell mementos (just don't call them souvenirs!)? A special tax on retail businesses within a few blocks (who would in theory benefit from the millions of visitors)?