Thirteen years since Kenya adopted a devolved system of government and 15 years since a new Constitution, the education sector has witnessed notable progress, especially at the grassroots, boosting retention and enrolment in learning facilities.
The 47 devolved units have since made significant investments in constructing and equipping ECDE centres, hiring teachers, and expanding access to early learning for children aged between four and six years.
Education stakeholders cited some counties that have taken the lead by building modern ECDE classrooms and introducing school feeding programmes, which have improved enrolment and retention particularly in rural and marginalised areas.
The new Mbariki ECD Centre built by Kiambu County Government
Photo credit: File | Nation Media Group
But as the country marks 15 years of devolution, education experts are calling for further coordination between counties and the national government to strengthen gains.
Kenya National Examination Council (Knec) CEO, Dr David Njengere, noted that education functions are split between national and county levels as outlined in Schedule Four of the Constitution.
Dr Njengere said the national government is responsible for policy, curriculum, assessment, quality assurance, primary and secondary education, and universities, whereas counties oversee childcare centres, ECDE, and VTCs.
Knec CEO David Njeng'ere at a past event.
Photo credit: Bonface Bogita | Nation Media Group
The Knec boss acknowledged that many counties have made commendable strides, particularly in infrastructure and the employment of ECDE teachers, some of whom now enjoy competitive remuneration.
However, he raised concerns about the lack of a unified national framework to monitor progress across all counties.
“If we want to achieve quality, equity, and inclusion, we cannot afford to let every county operate in isolation. We are one country and need a coordinated approach,” he said.
Dr Njengere emphasised the need for uniform basic standards across all pre-primary education facilities, particularly in terms of infrastructure and the quality of teaching staff.
“We don’t want a child growing up in county ‘A’ to experience a superior learning outcome compared to a child in county ‘B’. As services and people move across counties, children should not be subjected to different learning standards based on where they live,” said Dr Njengere.
He also highlighted that counties are responsible for pre-primary care, including children aged between 0 and 3 years.
“As more parents engage in economic activities, they inevitably leave their young children somewhere during the day. Ideally, this is the stage where critical developmental factors such as nutrition, early stimulation, and social interaction need to be nurtured. These early years, from 0 to 5, are foundational. If neglected, challenges emerge later in the child’s learning journey,” he said.
He urged counties to prioritise early childhood development and integrate care centres for children below pre-primary age.
Dr Njengere also called for stronger coordination between county and national governments, especially in quality assurance, which remains a national mandate.
“There must be an agreed framework to ensure all learners receive quality education regardless of where they are. If we invest well between the ages of 0 and 5, by the time children reach Grade 1, they will be well-prepared,” he noted.
While acknowledging progress made by several counties, Dr Njengere said some devolved units still lag behind and called for nationwide standardisation of critical aspects such as infrastructure and human capital.
“We adopted the new Constitution in 2010, and by 2025, we should have harmonised standards across all counties,” he added.
The Kenya Institute of Curriculum Development (KICD) Director, Prof Charles Ong’ondo, also has raised concerns on the implementation of the curriculum at the pre-primary level.
Prof Charles Ochieng’ Ong’ondo, the Kenya Institute of Curriculum Development director.
Photo credit: Sila Kiplagat | Nation Media Group
"My concerns are threefold: first, not all counties have employed qualified pre-primary teachers; second, there’s the issue of adequacy; and third and most concerning is the lack of teaching and learning resources," said Prof Ong’ondo.
He emphasised that pre-primary learners require interactive materials to support motor skill development.
"This is the stage where children need manipulatives like balls, clay, plasticine, ropes, and other items to support interaction and movement development. Unfortunately, we haven’t reached this level 15 years into devolution," he said.
“Many youths, including those who dropped out after primary school, could benefit from well-equipped vocational training centres. That has not been fully achieved, and it's something the country should be seriously concerned about,” he said.
Nonetheless, he acknowledged progress, citing Homa Bay County, where half of the pre-primary classrooms are now permanent structures.
“Traditionally, pre-primary learners studied under trees, but today, many counties have constructed decent classrooms. In some areas, the best facilities are at the ECDE level,” noted the curriculum expert.
Prof Ong’ondo also praised Makueni County for standardising salaries for ECDE teachers. However, he pointed out that while KICD develops the curriculum, its implementation lies with counties.
“We supply primary schools with textbooks on a one-to-one ratio, but that’s not the case with ECDE. Counties must place their own orders, and without standardised distribution, we cannot guarantee that learners are using approved books,” he said.
Vocational training institutions
Chairperson of the National Schools Forum, Dr Silas Mwirigi, added that counties have done commendable work in vocational training and ECDE.
“Governors deserve credit. Many have invested heavily in ECDE and are also sponsoring children to attend vocational training institutions,” he said.
The Kenya Secondary Schools Heads Association (KESSHA) National Chairman, Mr Willie Kuria, who is also the Principal of Murang’a High School, said the 15 years of devolution have seen the growth of ECDE centres, which had initially been neglected.
Kenya Secondary Schools Heads Association (KESSHA) chairperson Willy Kuria.
Photo credit: File | Nation
“Devolution has also assisted in secondary education through offering substantial bursaries to students. It would have been wise if county governments were allowed to develop physical infrastructure in basic learning institutions,” he said.
But as counties celebrate 12 years of devolution, the Council of Governors (CoG) has renewed its opposition to the proposed integration of pre-primary, primary, and junior secondary schools into Comprehensive Schools.
The governors argue that the plan undermines the spirit of devolution by centralising education functions, particularly Early Childhood Development Education (ECDE), which is a constitutional mandate of county governments.
CoG Chairperson and Wajir Governor Ahmed Abdullahi warned that the Council will resist any unilateral policy decisions affecting devolved functions without proper consultation, terming such moves unconstitutional and a threat to progress made in the education sector at the county level.
“Functions are clearly defined in the Constitution. ECDE is a devolved function. Before 2013, this area had been neglected with no resources allocated. Counties have since stepped up to build model ECDE schools and expand infrastructure,” said Mr Abdullahi.
He noted that some counties have added ECDE classrooms within primary schools, but emphasised that the national government must respect constitutional boundaries.
“The concept of comprehensive schools must align with the Constitution. National education bodies must collaborate with county departments of education to agree on implementation. Dialogue, not directives, is key to finding solutions,” he added.
The CoG is also reviewing a proposed Model Policy on Pre-Primary School Feeding, set to be launched during the ongoing Devolution Conference in Homa Bay County.
Nyeri Governor Mutahi Kahiga, who also serves as the Council of Governors (CoG) Vice Chairperson, has emphasised the need to strengthen the Early Childhood Development Education (ECDE) function under devolution.
Mr Kahiga said while Kenya has made notable progress under the devolved system, ECDE centres remain vulnerable due to lack of designated land ownership.
“Most ECDE centres are hosted within primary school compounds, yet constitutionally, they are separate entities. We must clearly demarcate land for ECDE centres to protect them,” he said.
The governor, a professional teacher, urged the Senate to defend devolution, warning that county leaders often face political backlash for aggressively defending their mandates.
“This is a country where, when you stand firm for your mandate, you are punished. But as a teacher, I understand how critical ECDE is to the foundation of our education system,” he added.
The Ministry of Education began rolling out Comprehensive Schools two years ago, placing ECDE, primary, and junior secondary under one head teacher, a move some governors argue undermines devolution.
But despite notable gains, challenges such as staffing shortages, limited funding, and uneven quality remain. However, stakeholders agree that devolution has laid a strong foundation for inclusive and localised education development.
