PS Bitok blames overcrowding in Grade 10 to ‘overzealous’ heads

Education PS Julius Bitok before the National Assembly Committee on Education on consideration of the 2026 Budget Policy Statement at Continental House on February 24, 2026. /DOUGLAS OKIDDY

Principal Secretary for Basic Education Julius Bitok has attributed the overcrowding witnessed in some Grade 10 classes to “overzealous” school heads who admitted learners beyond the capacity set by the ministry’s digital placement system.

Appearing before the National Assembly Committee on Education at Continental House in Nairobi on Tuesday, Bitok said the transition of 1,130,459 learners who sat the inaugural Kenya Junior School Education Assessment in November 2025 into senior school in January was largely seamless, but was later distorted by manual interventions at the school level.

The committee, chaired by Tinderet MP Julius Melly, had raised concerns over congestion in some institutions during consideration of the 2026-27 Budget Policy Statement.

Committee vice chair Eve Obara questioned why schools designed for three streams were admitting more than 800 learners.

“This over-enrolment is not sustainable. What is the ministry’s policy on capacity limits?” she asked.

Bitok explained that placement into senior schools was conducted digitally and enrolment limits were set, but some school principals took advantage during placement revision and manually placed learners beyond their institution's capacities.

“The transition to senior school was conducted digitally, placing 1.1 million learners. The overcrowding arises from manual interventions by Principals after the automated placements,” he said.

“Some became overzealous and took in too many students.”

He acknowledged that national schools such as Lenana School had enrolled 850 learners against a capacity of 700.

Melly faulted what he termed skewed enrolment patterns across the country.

“You cannot have one school with 800 students while a neighbouring one has 20. TSC teachers are idle in some schools, while others are overwhelmed. This is a crisis,” he said, directing the PS to table a matrix of enrolment by school to address disparities.

The session also turned sharply to the question of illegal levies imposed on parents, with lawmakers demanding enforcement of the ministry’s fee guidelines.

Members accused some schools of charging up to Sh27,000 in additional fees, including a performance improvement levy of Sh3,000 per term, contrary to government policy.

“I have a case in point,” Teso South MP Mary Emaase said. “A needy child in my constituency, sponsored by Family Bank and supported by the community, was sent home for failing to pay Sh27,000 in extra charges. The principal said the money would be collected at the gate when schools reopen. Who gave this directive? This is affecting vulnerable parents.”

Kitutu Masaba MP Clive Gesiro pressed the PS to explain why the ministry was not enforcing approved fees structure.

“We raised this last year and the CS promised to issue a circular within two weeks. What action has been taken? Parents cannot continue to bear this exploitation.” 

Bitok told the committee that the ministry had already issued a Gazette notice on February 6, setting out a revised and standardised school fees structure to curb arbitrary charges and protect parents.

Under the new framework, day senior schools no longer require parents to pay fees. The government covers Sh4,144 per learner for tuition, Sh1,500 for activities, Sh2,000 for medical and insurance, and Sh200 for SMASSE.

Other vote heads include administration, learning and teaching, early years education and P.E at Sh9,400, as well as Sh5,000 for maintenance and improvement.

The total cost per student in day schools stands at Sh22,244, fully funded by the state.

For boarding senior schools, fees vary based on previously approved maximum rates.

Institutions that had been allowed to charge up to Sh53,554 will now have a total fee of Sh75,798, with parents paying up to Sh53,554 while the government contributes Sh22,244.

Schools whose earlier cap stood at Sh40,535 will retain that parental component, complemented by Sh22,244 from the government, bringing the total to Sh62,779.

Bitok promised firm enforcement action against non-compliant institutions.

“Kindly furnish us with the details. I will take firm action on that particular case,” he said in response to the complaint raised by MP Emaase.

He noted that governance challenges often stem from boards of management and disclosed that 15,900 education managers had been trained on the enhanced Kenya Education Management Information System (KEMIS) to enhance accountability.

The KEMIS is set to replace NEMIS after completion of the pilot phase started in July 2025.

This new system aims to create a more integrated database for tracking student data from foundational learning to university, addressing inefficiencies in the old system.

KEMIS is designed to eliminate ghost schools and inaccuracies in student data, enhancing the management of resources like capitation.

“For the first time in many years, we released capitation funds before schools opened. The transition to junior and senior schools has been challenging, but despite the teething problems, we are succeeding,” Bitok said.

Meanwhile, Melly directed the ministry to submit a report within 20 days confirming that all withheld examination certificates had been released in line with a presidential directive.

“The PS is the custodian of policy; principals are employees of the TSC. No school should hold certificates. We expect a full report,” he said.

School principals in Kenya have historically held KCPE and KCSE certificates to compel parents to clear outstanding school fee arrears.

While schools claim this ensures financial sustainability for services already rendered, the Ministry of Education considers this practice illegal.

Deeming the withholding of documents as a barrier to education advancement and employment, the government said it will starting this year be shifting collection to subcounty offices to prevent this behaviour.