Despite increasing student enrollments, which went from 36,705 students in 1981 to 58,796 students in 1988, education was not compulsory. In 1988 only about 25 percent of primary-school-age children attended school, an extremely low percentage by all standards. Although the government set enrollment quotas for high schools, in no instance did they come close to being met in the 1980s. Only about 8 percent of junior high-school-age and less than 3 percent of high-school-age children were enrolled in 1988.