The problem inhibiting Dönitz's plan was a lack of boats. On paper he had 259, but in January 1942, 99 were still undergoing sea trials and 59 were assigned to training flotillas, leaving only 101 on war operations. 35 of these were under repair in port, leaving 66 operational, of which 18 were low on fuel and returning to base, 23 were en route to areas where fuel and torpedoes needed to be conserved, and one was heading to the Mediterranean. Therefore, on 1 January Dönitz had a fighting strength of 16–25 in the Atlantic (six near to Iceland on "Norwegian operations"), three in the Arctic Ocean, three in the Mediterranean and three operating west of Gibraltar. Dönitz was severely limited to what he could accomplish in American waters in an initial offensive.