The inaugural Grade 10 class under the Competency-Based Curriculum (CBC) faces the prospect of starting Senior School in January 2026 without essential textbooks, as a deepening financial dispute threatens to halt the printing of over seven million learning materials. At the centre of the crisis is an outstanding government debt of approximately KSh 11.4 billion owed to publishers for books supplied to Grades 1 through 9 since 2022.

This has triggered a severe cash-flow crisis across the educational supply chain. Publishers, unable to absorb the prolonged non-payment, have consequently failed to pay their own suppliers, most notably printing firms, who are now owed an estimated KSh 4 billion. In response, printers have refused to take on new orders for the Grade 10 books, bringing the entire production process to a standstill.

The Kenya Publishers Association (KPA) and the Kenya Association of Manufacturers (KAM) have issued stark warnings about the potential disruption to the national academic calendar. "Operations within our publishing houses have been severely constrained, with many publishers struggling to meet day-to-day operational costs," stated KPA Chairperson Kiarie Kamau in press briefings throughout October and November 2025. A spokesperson for KAM echoed these concerns on Wednesday, November 12, 2025, telling the Business Daily that due to the non-payment, "printers are unable to proceed with the production of Grade 10 textbooks, putting the implementation of the CBC curriculum at risk."

A Looming Educational Crisis

The transition to Grade 10 marks a critical phase in the CBC rollout, representing the start of Senior School where learners pursue specialized career pathways. The government's one-to-one book-to-learner ratio policy requires the timely production and distribution of these materials to ensure a smooth start to the 2026 academic year.

The production timeline is tight, with publishers estimating a minimum of 60 days for printing and an additional 30 days for nationwide distribution. With the deadline for the January 2026 school opening fast approaching, industry stakeholders warn that any further delay in resolving the payment issue will make it impossible to meet the schedule. The required materials include 35 different textbooks and literary works to be produced by 21 publishing firms.

The total debt owed to publishers is broken down into KSh 11.15 billion for books supplied to Grades 1-8 and KSh 234.5 million for Grade 9 materials. This financial strain has not only affected printers but also authors, distributors, and has led to delays in tax remittances to the Kenya Revenue Authority (KRA), according to the KPA.

Government and Institutional Response

The procurement of textbooks is managed by the Kenya Institute of Curriculum Development (KICD), which evaluates and approves the content before contracting publishers on behalf of the Ministry of Education. When approached for comment, KICD has stated it only manages the contracting process and directed payment inquiries to the Ministry of Education. In a statement reported by the Daily Nation on October 9, 2025, KICD Director Prof. Charles Ong'ondo acknowledged the accumulated debt and attributed payment delays to a data verification exercise by the ministry and the fact that funds are typically released alongside school capitation.

The situation is further complicated by a move from the National Assembly's Committee on Education. In mid-October, the committee called for a thorough audit of the KSh 11.3 billion pending bill, citing alleged discrepancies in past book supply and distribution before any payments are released. This audit could introduce further delays, pushing the timeline for resolving the impasse even further back.

As the stalemate continues, the education sector braces for significant disruption. Without an urgent injection of funds to clear the outstanding debts, the successful implementation of the CBC's senior school phase hangs in the balance, potentially leaving over a million students without the fundamental tools for their learning come January 2026.