More than a decade since the country adopted the devolved system of governance, it has come with a mixed bag of fortunes. Despite notable economic growth, there has been persistent fiscal mismanagement, political interference, and weak implementation.
This assessment comes as governors gather in Homa Bay County for the Devolution Conference 2025, which runs from Tuesday to Friday. The ninth conference since the inception of devolution, will draw thousands of delegates from within and outside Kenya, including policymakers, development partners, private sector leaders, academics, and the public.
Centred on the theme “For the People, For Prosperity: Devolution as a Catalyst for Equity, Inclusion, and Social Justice”, the event will feature plenary sessions, side events, and exhibitions showcasing innovations in governance and service delivery. President William Ruto will open the conference, while former Prime Minister Raila Odinga will deliver a keynote address on justice and equity. Deputy President Kithure Kindiki will lead a finance-focused discussion.
National Steering Committee Chairperson and Nyeri Governor Mutahi Kahiga promised a people-centred agenda. “This is going to be a conference about inclusivity, and about the government listening to the people,” he said.
Devolution Conference Steering Committee Chairman Ahmed Abdulahi addresses journalists at the Uasin Gishu county headquarters in Eldoret on June 13. 2023.
Photo credit: Jared Nyataya | Nation Media Group
Homa Bay Senator Moses Kajwang’ described the gathering as “more than a national affair” that would boost local business, promote tourism, and deepen ties with development partners.
According to the Parliamentary Budget Office (PBO), the economies of at least 20 counties have more than tripled since devolution began, with counties generating nearly a third of all new wealth in Kenya since 2013. Collective gross county product (GCP) rose from Sh1.16 trillion in 2013 to Sh4 trillion in 2023, with Kilifi, Elgeyo Marakwet, and Meru recording the largest gains.
Yet, critics say devolution has decentralised corruption, citing governors and officials implicated in graft worth billions. Four former governors, some alongside their children, face charges, while hundreds of officials have been prosecuted.
Since 2013, counties have received at least Sh4.5 trillion from the national government and development partners. As of June 30, 2024, they had been allocated Sh3.7 trillion in equitable share and additional funding. Nairobi, Kiambu, Turkana, Nakuru, Kakamega, and Mombasa have been the largest beneficiaries.
Auditor-General Nancy Gathungu.
Photo credit: File | Nation Media Group
For FY 2025/26, counties are set to receive Sh568 billion, including Sh415 billion in equitable share and Sh16.8 billion from the Equalisation Fund, with Sh50 billion projected from own-source revenue. University of Nairobi Economics Professor Samuel Nyandemo warns that resources remain concentrated in already developed areas, undermining devolution’s intent to uplift marginalised regions.
Auditor-General Nancy Gathungu and Controller of Budget Margaret Nyakang’o have flagged excessive recurrent spending at the expense of development.
The Ethics and Anti-Corruption Commission (EACC) processed over 10,500 county corruption reports between 2013 and 2023, ranking Uasin Gishu, Baringo, Elgeyo Marakwet, Marsabit, Embu, Homa Bay, Bomet, Kakamega, Tana River, Kiambu, Meru, Nyamira, and Wajir among the most corrupt. Bribes for services in Uasin Gishu averaged Sh25,873, with the highest — Sh243,651 — linked to securing county jobs.
Council of Governors (CoG) Chair Ahmed Abdullahi noted progress in healthcare, infrastructure, and agriculture but warned that delayed disbursements, mounting pending bills, and policy bottlenecks threaten gains. Pending bills totalled Sh172.51 billion as of March 31, 2025 — Nairobi accounting for 70 per cent.
Controller of Budget Margaret Nyakang'o.
Photo credit: Jared Nyataya | Nation Media Group
Fiscal uncertainty persists. In FY 2024/25, counties projected revenue of Sh600.69 billion, yet by June 30 had received Sh354.33 billion. Mr Abdullahi said the full equitable share of Sh400.26 billion plus Sh16.27 billion in partner funding was eventually disbursed.
He criticised the national government’s reluctance to fully cede devolved functions, citing “continued claw back of funds, unconstitutional interference, and delays.”
Devolution, reinstated by the 2010 Constitution after its 1960s abandonment, created 47 semi-autonomous counties responsible for 14 core functions, including primary healthcare and agricultural extension. However, disputes over control and resources between the two levels of government remain unresolved.
“Kenyans are calling upon both national and county governments to step up and deliver on the promise of our Constitution,” Mr Abdullahi said.
