The National Assembly Public Accounts Committee has raised concerns over the reliability of learner enrolment data used by the government to determine and disburse billions of shillings in education capitation, warning that gaps in the system could undermine the management of public funds.
The concerns emerged as the Committee, chaired by Butere MP Tindi Mwale, examined the Auditor-General’s Report for the 2023/2024 financial year on the accounts of the State Department for Basic Education.
The Auditor-General questioned capitation payments made under the Free Primary Education (FPE), Junior Secondary Education (JSE) and Free Day Secondary Education (FDSE) programmes, saying there was no documentary evidence to confirm that learner data in the National Education Management Information System (NEMIS) had been verified before the funds were released.
The government disbursed Sh63.95 billion for FDSE, Sh30.99 billion for JSE and Sh9.05 billion for FPE based on learner enrolment figures captured in NEMIS.
However, the Auditor-General said NEMIS continuously updates learner records without a clear cut-off point, making it difficult to establish the exact number of learners at any given time.
The system also excludes learners without birth certificates and does not provide funding for learners who have attained the age of 18, raising further questions about the completeness of the data used in allocating capitation.
Appearing before the Committee, Basic Education Principal Secretary John Ololtuaa acknowledged shortcomings in NEMIS and disclosed that the Ministry plans to replace the system with the Kenya Education Management Information System (KEMIS) from next year.
The PS said NEMIS, introduced in 2017 to digitise learner records and streamline processes including admissions, capitation and examination registration, has faced challenges including incomplete coverage, unreliable data and limited integration with other government systems.
The disclosure prompted MPs to question how the government determines the amount of capitation required if the number of learners receiving government support cannot be accurately verified.
“ NEMIS was introduced to digitise student records and streamline processes such as capitation disbursement. Are you saying money is disbursed to unconfirmed learners?” Hon. Mwale asked.
The PS maintained that the weaknesses identified in NEMIS had not resulted in evidence of irregular capitation payments, saying the planned transition to KEMIS would strengthen controls and improve the management of learner information.
The Committee, however, demanded documentation explaining how the Ministry arrived at the decision to migrate from NEMIS to KEMIS, with MPs warning that the transition must not become another avenue for unnecessary expenditure.
The PS told the lawmakers, “The field officers have the data and they can be verified through physical verification.”
PS affirmed before the lawmakers, “We are using Verified Data, we are not using NEMIS and KEMIS”
But the response left MPs seeking clarity on the legal and administrative basis of the alternative system being used to verify learner numbers.
MP Tindi Scott asked, “Do you have the approval communication to use manual way or what is the stand? “
Gabriel Kagombe questioned the reliability of the process, saying, “Things are done through guesswork! How can you miss this data? I think this is intentional so that money is siphoned. At what level does the student interact with KNEC? What are we using in lower primary?”
Turkana Central MP Namuar called for education officials involved in the process to appear before the Committee and explain how the system was approved.
“It’s good if we have these officers involved in this interaction to explain to us. How was this thing was approved? Was there ministerial approvals?” Namuar said.
MP Naisuula also sought an explanation over the alternative framework adopted by the Ministry.
“What is this you’re telling us that the ministry introduced the alternative framework? What were the circumstances?” Naisuula asked.
Gichuki Mugo expressed concern over whether the PS would be able to provide adequate answers to all the questions raised by the Committee.
“My fear is even if we ask the PS to respond to what he doesn’t understand?” Mugo said.
The Committee directed the Ministry to provide documentation supporting the migration from NEMIS to KEMIS, as well as the approvals and framework governing the alternative verification of learner data.
The PS committed to submit the requested documentation to the Committee within two weeks.
