Kenya’s free education program, a cornerstone of the nation’s development agenda since its introduction in 2003, is facing growing scrutiny as financial constraints threaten its sustainability. The initiative, which aimed to provide universal primary education and later expanded to secondary schools, has significantly increased enrolment rates and transformed lives by offering access to education for millions of Kenyan children. However, recent developments, including government admissions of funding challenges, have sparked a national debate about the program’s future and whether it can deliver on its promise of equitable, quality education for all.
A Landmark Policy with Remarkable Gains
Kenya’s Free Primary Education (FPE) program, launched in 2003, was a bold step toward achieving universal primary education, aligning with global commitments, such as the United Nations’ Sustainable Development Goal 4 (SDG 4), for inclusive and equitable education. The policy led to an immediate surge in enrolment, with primary school attendance reaching 93% by 2020. The introduction of free secondary education in 2007 further bolstered access, with the transition rate from primary to secondary school rising from 83% in 2018 to 95% in 2020. These achievements, supported by robust policies such as the 2010 Constitution and the Basic Education Act of 2013, have positioned Kenya as a top performer in education in Eastern and Southern Africa.
The program’s impact is undeniable. It has reduced barriers for children from poor households, offering a pathway out of poverty through education. With support from initiatives like the Global Partnership for Education (GPE), Kenya has also invested in teacher training, textbook provision, and digital literacy, further strengthening the education system. For instance, the government’s Digital Literacy Project distributed one million learning tablets to over 20,000 schools, enhancing access to educational resources.
Hidden Costs and Persistent Challenges
Despite these successes, the free education program faces significant hurdles that undermine its effectiveness. Hidden costs—such as uniforms, transport, and supplementary fees—continue to prevent many children from accessing education. UNICEF reports that 2.5 million children aged 4-17 have never attended school, and secondary school enrollment remains at just over 50%. High pupil-to-teacher ratios, particularly in marginalized areas like Turkana (77:1), and poor-quality teaching further compromise learning outcomes.
The quality of education is another pressing concern. Studies, such as those by Uwezo Kenya, reveal that many students lack basic literacy and numeracy skills. For example, only three out of ten Class Three students can read a Class Two story, and 10% of Class Eight students struggle with Class Two-level division. These gaps highlight a system where access has improved, but learning outcomes often lag, prompting some parents to opt for low-cost private schools despite the availability of free public education.
A Funding Crisis Threatens Progress
The most immediate threat to Kenya’s free education program is a funding crisis. In July 2025, Treasury Cabinet Secretary John Mbadi admitted before the National Assembly Committee on Education that the government can no longer fully fund the program. The approved capitation for secondary school students is Ksh22,244 per learner annually, but only Ksh16,600 is currently disbursed, creating a shortfall of over Ksh5,000 per student. Primary schools face similar challenges, receiving only Ksh1,420 per learner annually against a recommended Ksh2,238. The Ministry of Education owes schools an estimated Sh64 billion in arrears, accumulated over years of delayed disbursements.
This funding gap has forced school administrators to operate with insufficient resources, leading some to impose levies to bridge the shortfall—a practice that has drawn criticism and, in some cases, penalties from the Ministry. Lawmakers and education stakeholders have warned that the sustainability of free education is at serious risk, with some, like MP Robert Mbui, suggesting a shift to cost-sharing with parents to maintain the program.
Voices of Concern and Calls for Reform
The government’s admission has sparked outrage and reignited debates about national priorities. Former Baringo Senator Gideon Moi called the funding cuts a “betrayal of a national promise,” arguing that education, as a fundamental form of empowerment, should not be sacrificed for less impactful programs. Former Prime Minister Raila Odinga echoed these sentiments, urging the government to prioritize education funding and ensure free access from primary to tertiary levels.
Critics also point to systemic issues, such as inefficiencies in fund allocation and the need for better oversight. The Ministry of Education has proposed reforms, including reducing administrative costs, resizing staff, and outsourcing services to ensure financial sustainability. However, these measures have yet to address the immediate funding shortfalls or restore public confidence.
The Way Forward: Balancing Access and Quality
To secure the future of free education, Kenya must address both funding and quality challenges. Increasing budget allocations to education, as recommended by the Presidential Working Party on Education Reform, could help close the capitation gap. Investing in teacher training and reducing pupil-to-teacher ratios, particularly in underserved regions, would improve learning outcomes. Expanding digital literacy programs and leveraging technology, such as the National Education Management Information System, could enhance efficiency and access.
Moreover, addressing hidden costs through targeted subsidies for uniforms, transport, and meals could ensure that the most marginalized children benefit from the program. Engaging communities and stakeholders in policy implementation, as highlighted by studies on teacher motivation, is also critical to translating policy into effective classroom practices.
Conclusion: A Call to Prioritize Education
Kenya’s free education program remains a powerful tool for reducing inequality and fostering development, but its sustainability hangs in the balance. The government’s commitment to education as a national priority must translate into concrete action—adequate funding, systemic reforms, and a focus on quality. As Kenya strives to achieve its Vision 2030 goals, ensuring that every child has access to meaningful education is not just a policy issue but a moral imperative. The nation cannot afford to let this transformative promise falter.
