Inside State's plan for single funding model for primary, junior schools

Basic Education PS Julius Bitok before the Public Accounts Committee at Bunge Towers, Parliament, Nairobi, April 22, 2026. [Elvis Ogina, Standard]

The government plans to merge primary and junior secondary school funding. Basic Education Principal Secretary Julius Bitok has revealed that beginning the next financial year, capitation for primary and junior secondary schools will be merged under a single comprehensive funding model.

Appearing before the National Assembly Departmental Committee on Education during deliberations on the 2026/27 Budget Estimates, Bitok said the move is informed by the reality that primary and junior secondary schools currently operate within the same institutions, share infrastructure and are managed under one administration.

“We need a one-school system so that by the end of the day, you don’t separate here and there. You also promote efficiency,” Bitok told MPs during the session.

The PS explained that the Government is now pushing for the establishment of comprehensive schools bringing together primary, junior and senior schools under one institution to streamline management and optimise resources.

The proposal signals a major policy shift under the Competency-Based Education (CBE) and is likely to spark fresh debate within the education sector, especially among stakeholders who have been advocating for operational independence of junior secondary schools (JSS).

Since the rollout of JSS, teacher unions and education stakeholders have repeatedly argued that the institutions should be autonomous, with separate management structures, budgets and staffing systems distinct from primary schools.

The argument has largely been anchored on the premise that JSS represents a transition into secondary education and therefore requires independent administration similar to traditional high schools.

However, the government now appears to be moving in the opposite direction.

The move is expected to trigger concerns among JSS teachers, many of whom have been pushing for full recognition as secondary school teachers, complete with independent staffing, laboratories, infrastructure and administration.

Bitok revealed a Sh71 billion budget deficit in the education sector. According to the PS, the shortfall threatens critical programmes across the education sector, including capitation to schools, procurement of textbooks, national examinations, school feeding programmes and construction of Grade 9 classrooms.

“Our request to the committee is an additional Sh71 billion. That will be able to help us meet the capitation requirements, school feeding programme, junior school and senior school infrastructure, examinations and operations,” Bitok told the committee.

The government is facing an Sh8.6 billion deficit in Free Primary Education funding, threatening capitation for more than 6.3 million learners.

Budget documents tabled before MPs show the programme requires Sh15.6 billion but only Sh7 billion has been allocated. 

The ministry warns that more than 3.7 million learners could miss capitation if Parliament fails to bridge the gap.

Junior secondary schools have been hit by a Sh23.7 billion funding deficit, which could worsen the already existing infrastructure and staffing crisis under CBE. 

The ministry requires Sh54.6 billion for JSS but only Sh30.9 billion has been allocated. Officials warned that more than 1.5 million learners risk missing capitation under the current budget estimates.

Secondary schools are also staring at a financial crisis after the ministry disclosed a Sh23.7 billion deficit in Free Day Secondary Education. 

The programme requires Sh78.4 billion but the Treasury approved Sh54.8 billion.

The school feeding programme has a Sh3.7 billion deficit, threatening meals for 2.8 million learners in arid and semi-arid Lands and informal settlement areas.

The ministry says only Sh3 billion has been allocated against a requirement of Sh6.7 billion for the next financial year.

National examinations are facing a Sh4.8 billion deficit after the ministry revealed it requires Sh14.7 billion for the exercise.