The Kayibanda administration established quotas to try to increase the number of Hutu in schools and the civil service. This effort ended up penalizing the Tutsi. They were allowed only nine percent of secondary school and university seats, which was their proportion of the population. The quotas also extended to the civil service. With unemployment high, competition for such opportunities increased ethnic tensions. The Kayibanda government also continued the Belgian colonial government's policy of requiring ethnic identity cards, and it discouraged "mixed" marriages.