In subsequent years, the central government has enacted a number of reforms, with limited impact. In 2001, it asserted that public schools should be the primary form of education for the nation's children, but didn't specify how it would financially support schools in enrolling more migrant children, resulting in little change. Similarly, in 2003, the government called for lower fees for migrant children, but again failed to detail how it would help schools pay for this. And in 2006, the government created the New Compulsory Education Act with asserted equal rights to education and ceded responsibility for enrolling migrant children to provincial governments. However, this too failed to improve the lot of migrant children. Students with non-local hukou had to pay inflated admission fees of 3,000 – 5,000 yuan – out of an average annual household income of 10,000 yuan – and are required to take The National College Entrance Examination ("Gaokao") at their hukou locality, where it is often harder to get into college. Since 2012, some regions began to relax the requirements and allow some children of migrants to take College Entrance Exam in the regions. By 2016 Guangdong's policies are the most relaxed. A child of migrants can take Entrance Exam in Guangdong if he or she has attended 3 years of highschool in the province, and if the parent(s) have legal jobs and have paid for 3 years of social insurance in the province.