Public Sector Workers Intensify Calls for Improved Conditions

Public sector workers in Kenya are escalating their demands for enhanced working conditions, fair remuneration, and increased government investment in critical services such as health and education. This comes amidst a backdrop of ongoing industrial unrest and strike threats from various unions across the country. The grievances mirror those expressed by public sector employees in other nations, underscoring a global trend of workers advocating for better support and resources in essential services.

In recent months, several key unions have issued strike notices, signalling a potential disruption of vital services. The Kenya National Union of Nurses and Midwives (KNUNM) has repeatedly threatened a nationwide strike, with a notice issued in May 2025 for a walkout starting July 7, 2025, if their demands are not met. Their grievances include the conversion of Universal Health Coverage (UHC) nurses from contract to permanent and pensionable terms, non-implementation of the 2024 salary structure, and delays in concluding Collective Bargaining Agreements (CBAs) by county governments.

Similarly, the Kenya Union of Post-Primary Education Teachers (KUPPET) and the Kenya National Union of Teachers (KNUT) have also been at loggerheads with the Teachers Service Commission (TSC). In August 2024, both unions issued strike notices, demanding the implementation of the second phase of the 2021-2025 CBA, promotion of stagnated teachers, absorption of Junior Secondary School (JSS) teachers on permanent terms, and reinstatement of their medical cover. While some progress was made on the 2021-2025 CBA, other demands remain unresolved.

The Union of Kenya Civil Servants also announced plans for an industrial strike in January 2025, citing delays by the Salaries and Remuneration Commission (SRC) in implementing agreed-upon remuneration and benefits, particularly affecting county government employees.

Historical and Political Context of Labour Relations in Kenya

Kenya has a long history of trade unionism, with the Central Organization of Trade Unions (COTU) established in 1965 as the national trade union centre. Trade unions have played a significant role in shaping relations between employers and workers, advocating for better wages and terms of employment through negotiations, court action, and strikes. However, the journey has been marked by challenges, including colonial-era restrictions on union formation and persistent disputes over collective bargaining agreements in the post-independence era.

Strikes by teachers and health workers have historically been among the most impactful in Kenya, often leading to widespread disruption of services. Notable teachers' strikes include a 24-day action in 2013 and a 12-day strike in 1997, which led to significant salary increments. Health workers have also engaged in numerous strikes, frequently due to the non-implementation of CBAs.

Laws, Policy, and Governance of Strikes

The right to strike is a fundamental right enshrined in Article 41(2)(d) of the Constitution of Kenya, 2010. However, this right is not absolute and is subject to limitations outlined in the Labour Relations Act, 2007. For a strike to be lawful, specific procedural requirements must be met, including the existence of a trade dispute concerning terms of employment or union recognition, unresolved conciliation, and a seven-day written notice to the employer and the relevant Cabinet Secretary.

A key area of contention is the prohibition of strikes in essential services, as stipulated in Section 81(3) of the Labour Relations Act. While the Act aims to balance the right to strike with the public's right to access essential services, there is ongoing debate and varying interpretations by the courts regarding this prohibition. Workers in essential services who engage in unprotected strikes may face disciplinary action.

Stakeholders and Testimonies

The ongoing industrial disputes involve various stakeholders, including the respective trade unions, the Teachers Service Commission (TSC), the Salaries and Remuneration Commission (SRC), the Ministry of Health, the Ministry of Public Service, and county governments. Union leaders like Seth Panyako of KNUNM and Akello Misori of KUPPET have consistently voiced the frustrations of their members, highlighting unmet promises and deteriorating working conditions.

Nurses have spoken of patients being harmed or dying due to inadequate resources, while teachers lament leaving the profession due to feeling undervalued. These testimonies underscore the human impact of the unresolved labour disputes.

Evidence and Data

The government's commitment to investing in health and education is a recurring theme in these disputes. While Kenya's spending on health as a percentage of GDP is higher than its regional peers, it remains lower than the average for lower-middle-income countries. The government's contribution to health financing increased from 27% in 2009/10 to about 52% in 2018/19. Similarly, education is a priority under Kenya Vision 2030, with efforts to improve quality and access.

Risks and Implications

The continued threat of strikes in critical sectors poses significant risks to the public and the national economy. Disruptions in healthcare services can lead to severe health consequences for citizens, while teachers' strikes cripple learning in public institutions. These industrial actions also strain government resources and can lead to prolonged legal battles, further delaying the resolution of grievances. The perceived discrimination between national and county government employees in addressing remuneration concerns also risks fostering discontent and further industrial action.

Uncertainties and Controversies

A major point of contention remains the implementation of CBAs and the government's budgetary allocations. Unions frequently accuse the government of failing to honour agreements and underfunding essential services. For instance, the Ministry of Health was allocated KSh 121.09 billion in the 2021-2022 budget, a deficit of KSh 74.59 billion from what the Health Sector Working Group requested. Similarly, budget cuts have impacted the implementation of teachers' CBAs.

Timeline and Next Steps

As of October 2025, several strike notices remain active or have recently been addressed:

• **Nurses:** The Kenya National Union of Nurses and Midwives (KNUNM) issued a strike notice for July 7, 2025, if their demands regarding UHC nurses' terms, salary structures, and CBAs are not met.
• **Teachers:** In August 2024, KUPPET and KNUT issued strike notices over the implementation of the 2021-2025 CBA, promotions, and JSS teacher absorption. While some aspects of the CBA were implemented, other demands persist.
• **Civil Servants:** The Union of Kenya Civil Servants planned a strike in January 2025 over delayed implementation of remuneration agreements by the SRC.

What to Watch

The coming months will be crucial in determining the trajectory of labour relations in Kenya's public sector. Key areas to watch include:

• **Government's response to outstanding strike notices:** Will the government engage in meaningful negotiations to avert further industrial action, particularly from nurses and civil servants?
• **Implementation of existing agreements:** The full and timely implementation of CBAs and other agreements will be critical in building trust and preventing future disputes.
• **Budgetary allocations for health and education:** Future budget cycles will reveal the government's commitment to addressing the resource deficits highlighted by unions.
• **Court rulings on essential services strikes:** Judicial interpretations of the right to strike in essential services will continue to shape the landscape of industrial action in Kenya.