Dissatisfied with the Pavelić regime in its early months, the Axis Powers in September 1941 asked Maček to take over, but Maček again refused. Perceiving Maček as a potential rival, Pavelić subsequently had him arrested and interned in the Jasenovac concentration camp. The Ustaše initially did not have an army or administration capable of controlling all the territory of the NDH. The Ustaše movement had fewer than 12,000 members when the war started. While the Ustaše's own estimates put the number of their sympathizers even in the early phase at around 40,000.