Ministry under scrutiny over Sh540m lost in books’ scam
By Mercy Mwai, July 18, 2025The government is once again under scrutiny over questionable acquisition and distribution of books after it emerged that about Sh540.62 million spent by the Kenya Institute of Curriculum Development (KICD) may have been lost.
A special audit report tabled before MPs by Justus Okumu of the Office of the Auditor General has revealed irregularities and weaknesses in book procurement. The audit found that some schools received extra textbooks, others were given books for subjects they did not offer, and in some cases, books were not delivered to schools despite payment being made.
Financial discrepancies
The report also showed that 110 schools failed to maintain records of textbooks, teachers’ guides, and other instructional materials. This violates regulation 63(I) of the Basic Education Regulations 2015 that requires every institution to establish and maintain an inventory of all instructional materials, stationery, equipment, and assistive devices available, including their state of repair or use.
The report on capitation and infrastructure grants in schools revealed variances between the number of textbooks distributed and student enrolment. Over four financial years from 2020 to 2024, the State Department for Basic Education disbursed Sh27.9 billion to KICD, while the latter confirmed receicing Sh28.2 billion, resulting in an unexplained variance of Sh378.02 million.
According to the report, KICD had signed contracts with publishers for printing, packaging, and distribution of textbooks, specifying delivery points and final destinations. Under these contracts, all textbooks were to be delivered to schools according to distribution lists.
The report states: “The State Department retains and disburses textbook capitation to [KICD]. However, the rate per learner for the textbooks was not disclosed.”
Excess textbooks
The audit revealed that during the year under review, excess textbooks were delivered to 394 secondary schools, 94 Junior Secondary Schools (JSS), and 182 primary schools compared with enrolled learners, amounting to Sh90.8 million in value.
The excess books included 370,732 for secondary schools (valued at Sh83.1 million), 15,920 for JSS (valued at Sh3.6 million), and 28,600 for primary schools (valued at Sh4 million).
Conversely, the report shows there was a shortfall in textbooks delivered to 415 secondary schools, 194 JSS, and 245 primary schools compared to enrolled learners, with a total value of Sh295.6 million.
The shortfall included 1.2 million books in secondary schools (valued at Sh263.78 million), 82,922 books in JSS (valued at Sh17.6 million), and 85,050 books in primary schools (valued at Sh14.2 million).
Non-offered subjects
The report states: [The] number of excess textbooks supplied to schools ranged between one (1) to one thousand, one hundred and forty-eight (1,148) for secondary schools, one (1) to one hundred and sixty-one (161) for JSS and one (1) to four hundred and ninety-eight (498) for primary schools. The total value of excess textbooks supplied to schools was Sh90,834,203.”
“[The] shortfall in textbooks supplied to schools ranged between one (1) to one thousand, four hundred and eight-five (1,485) for secondary schools, one (1) to three hundred and seventy-six (376) for JSS and one (1) to five hundred and forty (540) for primary schools. The total value of the shortfall in textbooks supplied to schools amounted to Sh295,631,193,” the report says
Regarding the distribution of textbooks for subjects not offered at schools, the audit established that 118 secondary schools received 134,199 books, 225 JSS received 12,137, and 26 primary schools received 281 for subjects not offered, amounting to Sh30.3 million.
In secondary schools, 134,199 books were delivered for subjects not offered (valued at Sh27.1 million). In JSS, 12,137 books were delivered for subjects not offered (valued at Sh3.16 million). In primary schools, 281 books were delivered for subjects not taught (valued at Sh55,924).