In the last quarter of 1942, 69 submarines had been commissioned taking the total number to 393, with 212 operational. Dönitz was not satisfied and immediately began a naval construction programme which in contrast to Raeder's, laid all its emphasis on torpedo boats and submarines. Dönitz's proposed expansion ran into difficulties experienced by all of his predecessors; the lack of steel. The navy had no representation in or to Albert Speer's armaments ministry for naval production was the only sphere not under his control. Dönitz understood this worked against the navy because it lacked the elasticity to cope with breakdowns of production at any point, whereas the other services could make good production by compensating one sector at the expense of another. Without any representatives the battle of priorities was left to Speer and Göring. Dönitz had the sense to place U-boat production under Speer on the provison 40 per month were completed. Dönitz persuaded Hitler not to scrap the surface fleet capital ships, though they played no role in the Atlantic during his time in command. Dönitz reasoned the destruction of the surface fleet would provide the British with a victory and heap pressure on the U-boats, for these warships were tying down British air and naval forces that would otherwise be sent into the Atlantic.