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Before each school year, the Ministry of Education publishes a list of approved textbooks, from which teachers will choose the ones they will use in class. For the 2017-2018 school year, the list is 30 pages long. There is big money in school books, explains a publisher who wants to remain anonymous. "Getting on the list is the Holy Grail, and no holds are barred. Imagine a little, it's a huge market, more than 5 million students! Everyone wants their share of the pie: authors, publishers, printers or distributors, even if the methods they use are not always legal.”

A new report has unearthed massive irregularities in the procurement of textbooks for public schools, with head teachers playing a key role in the racket. The fraud ranges from forged signatures, delivery of phantom books, overpricing and single-sourcing of suppliers by instructional materials selection committees at the school level. Education Cabinet Secretary recently said that though the government allocated Sh10 billion for books in the last three years, most schools did not have the materials. He estimated that the pupil-to-book ratio stood at 5:1 in primary schools.

According to the 2013 Auditor General's report, the Ministry of Education, Science and Technology failed to follow procurement rules in the year under review, thus violating the National Public Procurement Authority Act 2004. The report states that procurement procedures were not followed by ministry officials in violation of annual procurement plan of the ministry which stipulates a National Competitive Bidding and International Competitive Bidding methods to procure food for government boarding schools; teaching and learning materials; and textbooks.

As a result of corruption and bureaucracy, millions of new books promised and paid by donors in 2008 were never delivered. About a third of them are still waiting to be distributed to the provinces and lots of the textbooks ordered were so poorly made that they may not last a second year.