By the fourth quarter of 2010, almost 40% of the population was covered by Seguro Popular. All the states had joined the programme by the end of 2006, but the actual availability of the programme at the municipal level took longer as the states had to strike a balance between the two conflicting aims of targeting the municipalities most in need while complying with minimum infrastructure requirements. By the end of 2005, about 65% of the municipalities were offering the programme and gradual expansion led to almost full coverage by the end of 2010.