Evelyn Jepkemei 2011

An Analysis of the 8-4-4 System of Education in Kenya

Submitted

By

Evelyn Jepkemei

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Table of Contents

Introduction..................................................................................................................................... 3

The Impetus for Change.................................................................................................................. 3

The Policy Framework.................................................................................................................... 4

The Concept of Change .................................................................................................................. 6

Introduction of the 8-4-4 Policy and Reaction of the Public .......................................................... 7

The Implementation Process........................................................................................................... 7

Did 8-4-4 Succeed or Fail? ........................................................................................................... 10

Conclusion .................................................................................................................................... 11

References..................................................................................................................................... 13

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Introduction

Formal education in Kenya was introduced by missionaries and later administered by the

colonial government. The Ominde Commission of 1964 (Republic of Kenya, 1964) proposed

changes that were aimed at shifting educational focus to the needs of the newly independent

state. It was necessary that soon after independence Africans were enabled to take charge of

running the nation and there was need for the education sector to reflect that change. It was

reckoned education would be instrumental in enhancing national unity and africanization of the

state. Consequently, the new state adopted a system christened 7-4-2-3 which is basically

interpreted as seven years of primary education, four years of lower secondary education, two

years of upper secondary education, four years of lower secondary education, and three years of

university education. The need was critical for the country to develop skilled workers to hold

positions previously held by the British. Hence, expansion of educational opportunities became a

priority in the government’s development agenda. The system was soon however criticised that

since it was modelled after the British system, it propagated British interest and actually created

a white collar job mentality among the youth.

Interestingly, the new government maintained the colonial mode of addressing educational

problems through commissions of inquiry and task forces. In 1981, The Presidential Working

Party on the Second University was established to study the prospects of establishing a second

university in the Kenya and reforming the educational system. The report of the Presidential

working Party on the Establishment of a Second University also known as the Mackay Report

(Republic of Kenya, 1981) recommended a change from the 7-4-2-3 system to an 8-4-4 system,

implying eight years of primary education, four years of secondary education and four years of

university education.

The government adopted and implemented the proposals by the Mackay Report and 8-4-4

system of education was introduced in January 1985.

The Impetus for Change

Change is considered a necessary process of development and progress. Obligatory change is

often ineffective because it does not address principal structures or attitudes and beliefs. Change

as a response to external or political pressure is least likely to succeed, whereas as an outgrowth

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of internal problem solving has the best chance of success (Fullan, 2002). According to scholars

(Jordan, 2004; Gill, 2003), change is a constant feature in systems and change is often a response

to the need for improvement.

In Kenya, the call for change of education system was based on the apparent limitation of the

former educational policy. Critics of the former system argued that it lacked the capacity and

flexibility to respond to the changing aspirations of individual Kenyans and the labour market

needs, in terms of new skills, new technologies and the attitude to work (Owino, 1997).

The weakness of the former educational policy reportedly manifested itself through

unemployment due to lack of specific skills required for wage employment or self-employment

(Elimu Kwa Wanavijiji Coalition, 2004) or because the graduates had an expectation and

selective attitude towards the type of jobs they wanted to engage in (Kerre, 1997). While citing

the weaknesses of the former system, it is important to note that there was a pervasive negative

attitude towards vocational engagements ( CBS, 2002; Otiende, Wamahiu, & Karagan, 1992).

King & McGrath (2000) maintain that “the 8-4-4 policy arose out of the concerns that a basic

academic education might lack the necessary content to promote widespread self employment”

(p. 73). The policy that promoted 8-4-4 therefore arose from the notion that the system would

impart skills that would enable individuals leaving school at any level to find employment in the

formal or informal sector. Essentially the new system was meant to steer the youth towards self-

employment. Consequently 8-4-4 set out to promote attitudinal and skills preparations for the

world of work and especially self-employment.

The Policy Framework

The concept of Policy

The society is constantly undergoing change and from time to time policy underpinnings of

educational practice are subsequently changed to reflect the dynamics in the society. The

policies that guide the sector form the basis of the practice in the sector. It would be important to

briefly discuss the influence of policy in education as it underpins the educational culture.

Harman (1984) has articulated policy to imply:

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“the implicit or explicit specification of courses of purposive action being followed or to be

followed in dealing with a recognised [educational] problem or matter of concern, and directed

towards the accomplishment of some intended or desired set of goals. Policy can also be thought

of as a position, or stance developed in response to a problem or issue of conflict, and directed

towards a particular [educational] objective” (p.13). Trowler, (2002) also contributes to the

definition of policy by stating that policy the clear expression of current actions or preferred

aimed at attaining certain clarified goals. Often, policy is conceptualized and created mainly at

the highest level and is assumed to be generally coherent and rational.

Is policy text or action? Most of the time documents have been produced as policies, such

National Aids Policy, Gender Policy and Non Formal Education Policy. However, scholars have

explained that policy goes beyond text and influences action. Ball (1990) states that policy is the

economy of power; while (Dinan-Thompson, 1998) highights that power and politics are central

to policy development and implementation. From the many different definitions of policy

therefore it can be deduced that policy is a set of guidelines and values that guide governance

and practice in a given area.

Policies can be classified in a number of ways usually applying a binary distinction. Most

commonly, policies are classified by the subject or policy arena with which they are concerned,

e.g. educational policy (Dinan-Thompson, 1998). The 8-4-4 policy is definitely a significant

educational policy because it commanded sweeping changes in the entire education sector in

Kenya.

Perspectives on Policy Change

According to Gill (2003), change is necessary in every organization and in every society.

However, it is only proper leadership of change that delivers the desired results. Said he, “it

requires leadership to introduce change successfully” (p. 307). A number of theoretical

approaches to the changes in public policy share a common and popular feature: policy change is

the outcome of changing preferences among political actors . In one view, (Trowler ) policy

change is the outcome of changing preferences in actors or changing power assemblage between

actors with different preferences (Ostrom, 2003). Sabatier & Jenkins-Smith, 1993) puts forth

another version of an actor’s perspective and emphasize that policy change is normally caused by

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external system events such as changes in economic and political conditions that affect actors’

belief systems. A structural perspective emphasizes how underlying norms and values shape

policy change. This perspective explains policy change as an outcome of shifting values or

constellations of values (Rodgers, 1983). Such shifts may in turn be caused either by internal

dynamics of political institutions or external events that causes internal disruptions. In the case of

8-4-4, it is interesting to note that a foreign consultant chaired to commission that proposed the

changes. Many have suggested that this was a foreign concept, while others find it a paradox that

the former system was criticized for serving British interests yet a foreigner was instrumental in

changing the system (Owino, 1997). According to Ayiro, (2008) the 8-4-4 phenomenon was a

case of “employing a foreigner to implement an idea close to the president’s heart” (p.6).

The Concept of Change

In analyzing the introduction of 8-4-4, it makes sense to briefly explain change and explore the

conditions for successful change. In the education sector the world over, there is constant talk

about reforms. This craving for change is evidenced both in developed and developing countries

(Layton, 2003). In fact, successful leaders are those that are thought to employ transformational

leading styles, which imply change (Stewart, 2006).

So Why is change necessary? According to Wagner ( 2001) argue that in the arena of educational

change, the politician’s solution to educational problems is reform. In his view, the coomon

problem that the education sector is failing and its subsequent solution of reforms is a

misdiagnosis of the real problem. He argues that education today is certainly better in terms of

practice than it was in the past and that the problem is in the content taught which has become

obsolete as a result of the demand of new skill sets for the present society. Instead of reforms

therefore, he argues that there is need for reinvention.

Anderson & Kumari (2009) have added their voice to the debate by stating that education

improvement will not happen simply because there is a new policy, organizational structure or

practice, rather, when educational institutions become learning organizations in which the

personnel are engaged in continuous cycles of innovations, analysis of progress and results and

change directed towards a shared vision. Earlier, Sahlberg (2005) had avered that while nations

change their curricula because the exisiting ones are not what they should be, that change should

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be a learning process. He underscores the need for in-service training of teachers, raising

awarenes among the public and dissemination of curriculum support materials to improve

knowledge of the curriculum and the changes.

Introduction of the 8-4-4 Policy and Reaction of the Public

The introduction of 8-4-4 faced criticism from its beginning. Some of the fiercest critics cite poor

implementation process. According to Amutabi (2003), the implementation was done without

adequate preparations of the implementers and the public. It is also seen as a decision taken by

the political class without adequate consultation with education experts (Sifuna, 1990; King &

McGrath, 2002). The new system was resource intensive and the hurried implementation did not

give adequate time to institutions to set up the essential infrastructure. For instance the new

curriculum demanded use of workshops which schools except technical schools had to begin

constructing.

Examining the introduction of 8-4-4 in the context of existing change theories advanced by

scholars, it is not surprising the new changes were received with hostility. The fact that this

innovation was seen as KANU idea; it automatically drew opposition from political opponents of

President Moi who was the initiator of the system. But moving into more scholarly analysis, 8-4-

4 was hurriedly introduced. Apart from the Mackay Report, there was no research carried out

and so the decision to change the system and even the suitability, of the subjects was not

evidence based. Instead it was a presidential decree, and therefore fell short of successful change

strategies advance by scholars (Fullan, 2002; Huber & West, 2002; Gill, 2003).

The Implementation Process

The 8-4-4 policy system was introduced because it was believed that it would empower learners

with practical skills which would be useful to them either in wage or self employment. It was

meant to enhance the employability of the learner and thus making self-reliance a reality.

The Ministry of Education stated that the 8-4-4 policy was designed to encourage students to

become more self-reliant and better oriented towards self-employment (Ministry of Education,

Science and Technology , 2004). It contained a rather broad curriculum at both primary and

secondary levels, with a strong emphasis on practical subjects sitting alongside a rather

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traditional approach to academic subject. Business education was introduced into upper primary

as an evident of encouraging self-employment. As well as business education’s focus on

providing basic knowledge and skills on issues such as record keeping, there was a cross-

curricular emphasis on attitudinal orientation towards self employment.

With regard to content, system has come under condemnation for the broadness of content and

thus being burdensome to pupils. In fact, in a study carried out by Kenya Institute of Education,

(1999) it became apparent that there were problems relating to overloads within and across

subjects. It is due to the burdensome nature of education that there were widespread incidences

of violence in schools.

The Ministry of Education, charged with the responsibility of implementing the policy, assigned

two task forces, one to assess curriculum implementation and the other to assess the cost of

implementing the 8-4-4 curriculum (Saitoti, 2004). The recommendations of the taskforce

(Ministry of Education, Science and Technology , 2004)on the curriculum recommended that “A

structure … should lead to the development of communication skills (literacy) through the

teaching of mother tongue, English, and Swahili languages. The development of positive attitude

towards sciences was expected to be done through the teaching of mathematics and sciences.

The development and acquisition of social and cultural knowledge, skills and attitudes will be

done through the teaching of social studies, religious education, music and physical education,

art, craft and home science will provide for practical knowledge and skills” (p.4).

The task force appointed to assess the cost of implementation urged caution and phasing in

strategy in implementing 8-4-4 reform (Eisemon, 1988). The observations of the task force

indicated that “the cost of sustaining education system represented about 26% of the national

budget; The estimated cost of building and equipping more than 1300 (13,289) standard eight

classes, employing new teachers and supplying free milk to additional 437,330 students was a

total of Ksh439, 039, 516 ($ 3,337,000). But the savings of the government were projected to be

less than a quarter of the total” (p.29)

The task force in analyzing the implication of eight years scheme in relationship to the

availability of trained teachers reported that two-thirds of the ‘teaching stock’ at the primary

level in 1983 had one or two years of initial training. None of them was trained in technical and

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vocational subjects”. Essentially there was no human resource who could competently teach in

the system especially for the added subjects. There were no trained technical and vocational

subjects teachers and local craftsmen could not be used since they did not have a pedagogical

background (Kerre, 1997; Simiyu, 2001). In February 1984 the Minister for Education and the

President were determined to proceed with the 8-4-4 scheme and stated that there was not going

to be any more debate about it.

The Kenya Institute of Education was subsequently instructed to prepare new syllabuses for

standard VII and VIII in less than a month and the District Education Officers and schools were

made responsible for ensuring that standard eight class rooms were ready in time for registration

of students in January 1985. The government employed more that 18,000 additional teachers

(untrained) in order to cope with the demand of additional year (Eisemon, 1988).

The new policy created opportunity for more options in technical and vocational subjects;

however, it experienced serious shortages or lack of essential resources and facilities (Simiyu,

2001). The cost of education invariably went up and local communities could not be mobilized

to provide the facilities required (Kerre, 1997). As a result, the policy was criticized that in was

heavily theoretical owing to scarcity of infrastructure. Due to high cost of facilities and resources

involved, the general public view is that the 8-4-4 education system activities be removed from

the mainstream and be left with the informal education system such as Jua Kali sector and the

non-formal institutions such as Youth Polytechnics (Kerre, 1997).

The objective of vocationalizing formal schools was to inculcate the necessary skills for

employment. Vocational subjects at the primary school level include art and craft

education, business education, agriculture and home economics. In secondary education,

vocational curriculum covers, business education, agriculture, metal and wood work, power

mechanics, electrical technology and others

The new 8-4-4 curriculum especially at primary school level reportedly had overloads in terms of

depth and width (Kenya Institute of Education, 1999). In fact according to the KIE study, there

were also overlaps with and across subjects. This finding was also advanced by the Koech

Commission and later by a needs assessment carried out by KIE (Kenya Institute of Education,

1999). This factor was a huge impediment to effective learning because the pupils worked under

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great pressure. The total number of subjects taught was 13, nine of which were examined

nationally at the end of the course.

According to Abagi & Olweya (1999) the extended curriculum content needed to be covered

within a short period and this increased pressure to students and staff and thus reduced students

performance (lower test scores). Intrinsically, teachers resorted to drilling the students for

examinations rather than teach for mastery of content (Heyneman, 1987). Consequently, pupils

were held in school until late and even during weekends. The subjects that were not examined

nationally were not taught and instead the examined subjects were taught at every available

opportunity. The pressure negatively affected the children’s motivation to learn resulting in the

rise in dropouts (Owino, 1997).

Did 8-4-4 Succeed or Fail?

Critics generally argue that the 8-4-4 educational policy has not been a successful one due to the

factors already discussed that is failure of government to involve stakeholders, high cost of

sustaining the system, hurried implementation, lack of qualified technically and vocationally

qualified staff and weak infrastructure and general inefficiency.

Although the 8-4-4 system of education was overloaded with subjects, reforms and

rationalization was carried out in 1999 as part of the implementation of the recommendations of

the Koech Report (Republic of Kenya, 1999). The subject load is now relatively low, a new

curriculum has been put in place which has addressed issues of overloads and overlaps within

and across subjects (Kenya Institute of Education, 1999).

Although the issue of the shortage of teachers persists, it is more a feature of the impact of SAPs

by the World Bank than an inherent feature of the 8-4-4. According to The Whirled Bank Group

(2003), In addition to making children pay for education, “the World Bank and the IMF have

also forced countries to crack down on teachers”.

According to Saitoti (Ministry of Education Science and Technology, 2004) the the concern on

the education system should be on quality rather than structure, the latter being just a vehicle and

not the substance; a means to an end. Structure refers to the cycles in relation to time taken to

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complete each level, yet of more critical importance is the curriculum, that is, what is contained

in the school syllabus within the cycles.

The current concerns therefore, as Saitoti expresses should be addressing the current

philosophical underpinnings of the curriculum. As reforms continue on the 8-4-4 system of

education, my opinion is there are concerns that extend beyond how the system was introduced

and the challenges of the past (UNESCO, 2004). While I find it difficult to say whether 8-4-4 is a

success or a failure, in my opinion, the greatest weakness of 8-4-4 as a system is the fact that its

introduction was not research based, rather it was a political decree. As such, many issues that

needed to be addressed on the basis of research data were tackled intuitively. All education

systems across the world are continually seeking for ways to improve (The World Bank, 2008;

Anderson & Kumari, 2009; UNESCO, 2010). The society is ever dynamic and therefore the

challenges facing the sector now have to do with whether it addresses the needs of the 21st

century, with regard to integration of ICT (Jepkemei, 2008), vocationalization of the curriculum

(Makori, 2005), life skills, emotional intelligence (Ayiro, 2009) and entrepreneurship (Taatila,

2010) among other skills. Currently, a taskforce has been appointed to review the education

system and make recommendations on the way forward.

Conclusion

The criticism of 8-4-4 with relation to its policy underpinnings and implementation process has

had its merit. However it is also apparent that the criticisms are more about the structure rather

than the curriculum and the pedagogical practice. 8-4-4 as a system should be judged on the

basis of its performance in delivering on the national goals of education. As study carried out by

KIE (Kenya Institute of Education, 2010) found that the curriculum to some extent addressed the

goals of education particularly those to do with the psychomotor and cognitive domains. It

however pointed out that the curriculum was inept in addressing the affective domain and thus

fell short of expectation in addressing issues realting to morality, patriotism and social cohesion.

The study (Kenya Institute of Education, 2010) also established that the curriculum cannot

adequately address the dicates of the current development blueprint, the Kenya Vision 2030

(GOK, 2007) since the policy framework of Vision 2030 was put in place after the curriculum

had been reviewed. Nevertheless, the Vision 2030 recommends the reform of the secondary

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education segment in Kenya. In my view, that recommendation implies reform of the entire

sector. The policy framework guiding the educational sector is contained in the Sessional Paper

No 1 of 2005 (Republic of Kenya, 2005). This paper also proposes sweeping changes including

making early childhood and secondary education part of basic education in accordance with the

EFA and MDG initiatives (UNESCO 1990; UNESCO, 2000). Other instruments provide

direction on how the education system should respond to the needs of the Kenyan society, these

instruments include the constitution, poverty reduction strategy papers and KESSP (International

Monetary Fund, 2005; Republic of Kenya, 2010). It seems however that the political class is still

keen on making intuitive decisions such as the recent upgrading of 30 schools to national status

(Ole Kiyiapi, 2011). The success of 8-4-4 as a system will therefore depend on how it responds

to the demands of the society expressed in the various policy instruments.

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