A dispute over how the government counts learners has placed the system used to release education funds under the microscope, with MPs demanding proof that the figures guiding billions of shillings in capitation can be trusted.
The National Assembly Public Accounts Committee raised the issue while considering the Auditor-General’s findings on the State Department for Basic Education for the 2023/2024 financial year.
The Committee, chaired by Butere MP Tindi Mwale, questioned the basis on which funds were released to schools after the audit raised concerns about the learner information contained in the National Education Management Information System (NEMIS).
The government released Sh63.95 billion through the Free Day Secondary Education (FDSE) programme, Sh30.99 billion for Junior Secondary Education (JSE) and Sh9.05 billion under Free Primary Education (FPE).
The payments were based on learner numbers recorded in NEMIS.
But the Auditor-General said the Ministry had not provided documents showing that the figures had been checked and confirmed by Sub-County Education Offices before the money was released.
The audit also pointed to the way NEMIS handles learner records, noting that information is updated continuously without a fixed point for determining the number of learners in the system.
The absence of a clear cut-off date makes it difficult to establish how many learners were captured when capitation was calculated.
There are also learners who do not appear in the system because they lack birth certificates. In addition, learners who have reached 18 years are not catered for under the funding arrangements.
These gaps raised concern among MPs over whether the government can accurately establish how much money schools require at any given time.
Basic Education Principal Secretary John Ololtuaa told the Committee that the Ministry was aware of the problems affecting NEMIS and was preparing to replace it with the Kenya Education Management Information System (KEMIS) from next year.
He said NEMIS was introduced in 2017 to digitise learner information and make it easier to manage admissions, capitation and examination registration.
However, the system has experienced problems ranging from incomplete records and unreliable information to weak integration with other government systems.
The PS said the Ministry was relying on verified information rather than depending entirely on either NEMIS or KEMIS.
The PS told the lawmakers, "The field officers have the data and they can be verified through physical verification."
He later stated, "We are using Verified Data, we are not using NEMIS and KEMIS"
The explanation triggered further questions from the Committee, with MPs seeking to know the authority behind the alternative method of verifying learner numbers.
Mwale questioned whether the government could release funds based on figures that had not been confirmed through the system designed for managing learner records.
“ 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.
Ololtuaa said the weaknesses in NEMIS had not been accompanied by evidence of irregular capitation payments. He added that the planned KEMIS system was intended to improve controls and strengthen the handling of learner records.
The response, however, failed to end the questions surrounding the verification process.
MP Tindi Scott sought proof that the Ministry had been authorised to use a manual system to confirm learner numbers.
"Do you have the approval communication to use manual way or what is the stand? " Scott asked.
Gabriel Kagombe was more critical of the process, questioning how the government could lack accurate information on learners despite having systems designed to capture the data.
"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?" Kagombe said.
Turkana Central MP Namuar called for officials involved in learner data verification to appear before the Committee and explain how the current arrangement came into effect.
"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 Lesuuda Naisuula also demanded an explanation on the alternative framework introduced 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 raised concerns over whether the PS had sufficient information to respond to the Committee’s questions.
"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 submit documents explaining the planned move from NEMIS to KEMIS, including the approvals behind the transition.
MPs also want the Ministry to provide the framework and authorisation governing the alternative process used to verify learner numbers.
They warned that the migration should not become a reason for unnecessary spending of public funds.
Ololtuaa committed to provide the requested documents within two weeks, giving the Committee an opportunity to examine how learner numbers are established and how the government determines the amount of capitation released to schools.