Free Education at Risk as Ministry Cites KES 64 Billion Nine-Year School Capitation Deficit.
The Ministry of Education has revealed that the Government of Kenya owes public schools a total of KES 64 billion in undisbursed capitation funds over a period of nine years. This was disclosed by Cabinet Secretary for Education Julius Migos during his appearance before the Education Committee of the National Assembly on 5 June 2025.
The CS said the country is cash-strapped and that’s why funds for free basic education in public primary and secondary schools are not being disbursed on time. This is 22 years after former President Mwai Kibaki declared free primary education in 2003.
CS Migos said: “We need to discuss how we can fund the education sector in the country. Underfunding affects the quality of education. It’s a live problem.” He added: “We are between a rock and a hard place,” saying the Ministry does not get the full budget from the National Assembly and as a result, they keep accumulating pending bills in capitation fees due to increasing student population.
Capitation is a government grant to support learning in public schools. The Education CS broke down the current approved capitation rates and the funds disbursed in Term 1 of 2025 as follows:
Primary Schools:
- Approved capitation per learner per year: KES 1,420
- Total learners: 5,812,164
- Amount disbursed for Term 1, 2025: KES 4.13 billion
- Disbursement status: Fully disbursed in January 2025
Junior Schools:
- Approved capitation per learner per year: KES 15,043
- Total learners: 2,994,201
- Amount disbursed for Term 1, 2025: KES 15.32 billion (50% of annual capitation)
- Disbursement status: Entire amount disbursed in January 2025
Secondary Schools:
- Approved capitation per learner per year: KES 22,244
- Total learners: 3,268,616 * Budgeted for FY 2024/25: KES 36.4 billion
- Amount disbursed for Term 1, 2025: KES 28.8 billion (50% of annual capitation)
- Disbursement status: Disbursed in two tranches — KES 14.41 billion in January 2025 and KES 14.41 billion in March 2025
Despite this, MPs expressed concerns on the ground. Igembe North MP Julius Taitamu said: “You are lying! Just tell the country that it’s the parents running the schools.” Narok County Woman Representative Rebecca Tonkei asked how school administrators are supposed to run without capitation.
Education Committee Chairperson Julius Melly also questioned illegal levies on parents: “Parents are asked to pay for examination fees in schools. Why are you allowing parents to be fleeced?” He said the committee is considering calling a national education funding conference.
More scrutiny was directed at the Ministry’s deductions from capitation funds for centralised activities. For example:
- In primary schools, KES 76.44 per learner is allocated annually for co-curricular activities, out of which KES 40 is retained at the Ministry headquarters and KES 36.44 is sent to schools.
- In junior schools, KES 700 is allocated per learner per year for co-curricular activities and KES 647 for internal assessments.
- In secondary schools, the Term 1 2025 allocation for activity fees per learner was KES 595, while KES 1,643 was allocated for teaching and learning materials. Internal examinations are funded at 11% of the total tuition capitation per learner.
Members of the committee expressed worry that withholding activity fees centrally would prevent learners from participating in essential co-curricular programmes like sports and arts and burden parents further.
The Cabinet Secretary said the funding gap is because Parliament didn’t allocate enough funds, “We ask for a budget but it’s reduced. We are struggling to know what to do about it.”
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The current funding crunch affects learners from vulnerable households most especially in arid and semi-arid regions where students rely not only on free education but also on school provided meals and services. Stakeholders warned that underfunding will exacerbate inequality and push out disadvantaged learners from school.
The constitutional provision under Article 53(1) guarantees every child the right to free and compulsory basic education. But MPs and education sector stakeholders said without the resolution of funding arrears and full capitation support the government’s commitment to free basic education is at risk.
Free Education at Risk as Ministry Cites KES 64 Billion Nine-Year School Capitation Deficit.