The Senegalese education system is based on its French equivalent. The state is responsible for the creation of an educational system that enables every citizen access to education. Articles 21 and 22 of the Constitution adopted in January 2001 guarantee access to education for all children. However, due to limited resources and low demand for secular education in areas where Islamic education is more prevalent, the law is not fully enforced. The Human Rights Measurement Initiative (HRMI) finds that Senegal is fulfilling only 58.1% of what it should be fulfilling for the right to education based on the country's level of income. HRMI breaks down the right to education by looking at the rights to both primary education and secondary education. While taking into consideration Senegal's income level, the nation is achieving 69.9% of what should be possible based on its resources (income) for primary education but only 46.4% for secondary education. Primary and secondary education Determined on February 16, 1991, official law n° 91-22 states three main objectives concerning Senegalese education. Firstly the educational system should create conditions that enable development within the entire nation, by creating capable men and women who can work efficiently to improve their nation, and who have a specific interest in Senegal's economic, social and cultural development. Secondly the educational system should promote Senegal's values: liberty, democracy, personal and civic morality, human rights, and the upholding of Senegalese society's laws and regulations. Lastly the educational system should enhance the nation's culture by creating men and women who actively participate in national activities, who possess the ability to effectively reflect on problems, and who can contribute to the advancement of science. Education is compulsory and free up to the age of 16. In 2002, the gross primary enrollment rate was 80%, and the net primary enrollment rate was 67.6%. Gross and net enrollment rates are based on the number of students formally registered in primary school and therefore do not necessarily reflect attendance. In 2000, 41.2% of children ages 5 to 14 years were attending school. Primary school attendance statistics are not available for Senegal. As of 2001, 80% of children who started primary school were likely to reach grade 5. The Ministry of Labor has indicated that the public school system is unable to cope with the number of children that must enroll each year. As a result, many school-age children seek education and