Secondary education is the last six or seven years of statutory formal education in the United States. It culminates with twelfth grade (age 17-18). Whether it begins with sixth grade (age 11-12) or seventh grade (age 12-13) varies by state and sometimes by school district. Secondary education in the United States occurs in two phases. The first is the ISCED lower secondary phase, a middle school or junior high school for students sixth grade through eighth grade. The second is the ISCED upper secondary phase, a high school or senior high school for students ninth grade through twelfth grade. There is some debate over the optimum age of transfer, and variation in some states; also, middle school often includes grades that are almost always considered primary school. High school enrollment increased when schools at this level became free, laws required children to attend until a certain age, and it was believed that every American student had the opportunity to participate regardless of their ability. In 1892, in response to many competing academic philosophies being promoted at the time, a working group of educators, known as the "Committee of Ten" was established by the National Education Association. It recommended twelve years of instruction, consisting of eight years of elementary education followed by four years of high school. Rejecting suggestions that high schools should divide students into college-bound and working-trades groups from the start, and in some cases also by race or ethnic background, they unanimously recommended that "every subject which is taught at all in a secondary school should be taught in the same way and to the same extent to every pupil so long as he pursues it, no matter what the probable destination of the pupil may be, or at what point his education is to cease." At the turn of the 20th century, it was common for high schools to have entrance examinations which restricted entrance to fewer than 5 percent of the population in preparation for college.