Sh7bn debt threatens to derail Grade 11 textbook rollout

Kenya publishers Association Chairman Musyoki Muli address press during the briefing on upcoming of 27th Nairobi international book fair(NIBF) scheduled for 23rd to 27th September at the Sarit Expo Centre,Nairobi.[Edward Kiplimo, Standard]

A crisis is looming over the rollout of Grade 11 after publishers warned that delays in settling a Sh7 billion government debt could affect the printing and distribution of textbooks needed by learners when schools reopen in January 2027.

The warning comes barely three months before the pioneer Competency-Based Education cohort moves to Grade 11, after the same learners experienced textbook shortages when they entered senior school this year.

Kenya Publishers Association chairman Musyoki Muli said publishers were owed between Sh9.2 billion and Sh9.3 billion before the government paid Sh2 billion in the past week, leaving an outstanding balance of about Sh7 billion.

Muli now warns that the outstanding debt could hinder publishers’ efforts to mobilise printers and other suppliers to produce about seven million Grade 11 books ahead of the January rollout.

“We are on the negotiating table with the Ministry of Basic Education in terms of solving this matter and they are listening and they are willing to help,” he said.

He said the government had promised to facilitate distribution in the first half of October, before national examinations begin.

He said there would be no immediate alarm if the agreement was honoured, but warned that printing remained dependent on the government enabling the industry financially.

“But what books? Who will have printed them? Because the printer must be enabled to print. A distributor must be paid to distribute the book,” Muli questioned.

An earlier KICD schedule for the publication and distribution of Grade 11 textbooks shows how far the rollout has fallen behind. Publishers were expected to submit proposals by November 25, 2025, with evaluation results due by December 20. Corrected copies were to be submitted by February 6, 2026, followed by printing between February 20 and April 30 and distribution to schools from May 2 to July 31.

The original distribution window has therefore already lapsed, with publishers now targeting the first half of October, just three months before the January 2027 rollout.

This now exposes the learners to yet another potential disruption in the supply of textbooks, raising concerns that they could begin Grade 11 without the learning materials they need.

The details emerged weeks after MPs warned that the government’s failure to settle a Sh9 billion debt owed to textbook publishers could leave schools unprepared for the rollout of Grade 11 next year, piling pressure on the Treasury to urgently release funds for learning materials.

The lawmakers said the mounting debt threatened to disrupt the production and distribution of textbooks at a critical stage of the Competency-Based Curriculum transition with schools expected to receive another cohort of learners in senior school next year.

They said the government could not expect the education system to move into the next phase of the curriculum without ensuring that the basic learning materials were available.

The Sh9 billion debt has placed the textbook programme under growing financial pressure, with publishers waiting for government payments for materials already supplied or commitments made under the national textbook programme.

The delays have raised concern over the ability of the industry to sustain the production and distribution schedules required ahead of the Grade 11 transition.

The concerns come as preparations for Grade 11 gather pace, with the Ministry of Education expected to ensure schools have the infrastructure, teachers and learning materials required for the new cohort.

MPs said the responsibility for ensuring that the programme was adequately financed rested with the government, particularly the Treasury and the Ministry of Education, and warned that continued delays could undermine preparations that have taken years to implement.

The Sh7.2billion outstanding bill represents a significant funding gap at a time when the government is expected to accelerate preparations for the next phase of the curriculum.

Publishers require payments to finance printing, production and distribution, while schools depend on the timely arrival of the books to support classroom instruction.

The lawmakers said failure to address the debt could have consequences beyond the publishing industry, directly affecting learners entering Grade 11.

They warned that a funding problem within the government should not be allowed to become a classroom problem for millions of learners.

MPs said waiting until learners report to school to address shortages would amount to poor planning and could place additional pressure on schools and families.

Grade 11 textbook crisis

January 2027: Pioneer CBC cohort expected to move to Grade 11

About Sh7 billion: Outstanding government debt to publishers, according to Kenya Publishers Association

Sh9.2–9.3 billion: Amount publishers were owed before a recent payment

Sh2 billion: Paid by government in the past week

7 million books: Grade 11 textbooks publishers need to produce

October 2026: Government has promised to facilitate distribution in the first half of the month

May 2–July 31, 2026: Original KICD distribution window for Grade 11 textbooks

February 20–April 30, 2026: Original printing period

November 25, 2025: Deadline for publishers to submit proposals

December 20, 2025: Scheduled date for evaluation results

February 6, 2026: Deadline for submission of corrected copies