Advancing Girls' Education Post-Pregnancy: Addressing Implementation Gaps in the National Guidelines for School Re-entry in Kenya

Key Messages

  1. Kenya's national guidelines provision for school re-entry after pregnancy represent a crucial step towards ensuring that girls’ complete their education. However, implementation gaps threaten to leave this potential unrealised.

  2. Investing in comprehensive girls' education programmes in Kenya, alongside the national guidelines for school re-entry, is essential to ensure pregnant girls and young mothers have a successful path back to school and a brighter future.

  3. National statistics show the achievement of gender parity in education in Kenya. However, disaggregation of the data by educational levels and gender reveals completion rates favouring girls at the primary and lower secondary levels with a reversal at upper secondary where there is a sudden drop in girls’ completion rates falling below boys. There is an urgent need for  deeper interrogation of this trend to establish its underlying causes and utilise the findings to develop targeted interventions to address the situation and ensure equal educational opportunities for all. 

  4. The multifaceted nature of early pregnancy in Kenya, as evidenced by research, underscores the need for a holistic approach that involves both girls and boys. Implementing a combination of interventions that address educational, social, economic and legal aspects can create a more supportive environment for girls, ultimately empowering both girls and boys to make informed choices about their sexual and reproductive health.

  5. Given the significant variation in teenage pregnancy rates across Kenyan counties, with Samburu experiencing the highest rate (50%) and Nyeri and Nyandarua the lowest (5%), researchers and policymakers should prioritise evaluating the effectiveness of existing programmes. This evaluation would identify areas for improvement and inform targeted interventions customised to the specific needs of each county.  

  6. While Kenya has shown progress in reducing teenage pregnancy rates (18% in 2014 to 15% in 2022), a significant challenge remains. To ensure girls’ and young women's well-being and educational achievement, sustained efforts are needed. By addressing the issue from multiple angles, Kenya can create a brighter future for them.

Introduction

Education is a fundamental human right and is essential for the realisation of all other human rights. It empowers individuals, raises them out of poverty, levels inequalities and ensures sustainable development. Despite this, according to the UNESCO Institute of Statistics, 250 million children and youth remain out of school globally. Among the out-of-school children are those who have never been enrolled in school, or have dropped out before completing a full cycle of education. Sub-Saharan Africa has the highest rates of education exclusion in the world with one out of five children of primary school age and three out of five children between the ages of 15 and 17 not in school. Pregnancy, both in and out-of-marriage is a key contributor to the non-completion of schooling by girls in the Sub-Saharan Africa region. This brief critically reviews  the National Guidelines for School Re-entry in Kenya, a policy intervention made by the Government of Kenya to address the issue of non-completion of school by children. While the aim of the Guidelines is to support all learners who have dropped out to re-enter and complete their schooling, this brief concentrates on the specific challenges faced by girls whose education has been disrupted by pregnancy. It critically examines the guideline intent against the on-the-ground realities and offers actionable insights and recommendations to policymakers and other stakeholders to ensure that the re-entry of pregnant girls and lactating mothers is inclusive and non-discriminatory. 

Advancing the right to education through policy interventions

In sub-Saharan Africa, laws, policies, or measures protecting adolescent girls' education during pregnancy and motherhood are in place in 38 out of 54 countries (Wamahiu & Musembi, 2023). For instance, Cameroon’s current policy permits pregnant girls to continue attending secondary schools and promotes broader access to sexual and reproductive health services and information. In 2019, Niger replaced a discriminatory law that excluded pregnant girls and permanently expelled married students with a new policy explicitly safeguarding their right to education. By 2016, Burundi had established a reintegration policy, and in 2020, the Zimbabwe Education Act was amended to align with the country’s 2013 Constitution, which prohibits the expulsion of pregnant girls from school. Uganda has also revised its guidelines to facilitate the re-entry of teen mothers into the education system. 

In Kenya, there have been several iterations of policy guidelines facilitating the re-entry of pregnant girls and lactating mothers into the education system since the mid-1990s. The National Guidelines for School Re-entry in Early Learning and Basic Education in 2020 operationalised the right of out-of-school children, including pregnant girls and lactating mothers among other groups, to continue with their education as enshrined in the Kenyan Constitution 2010 and Education Act 2013, and contributes to the achievement of  Vision 2030 and Sustainable Development Goal (SDG) 4.  

Providing clear guidelines for re-entry to school

One of the thematic areas of the Guidelines is early pregnancy. According to the Guidelines, early pregnancy refers to pregnancy that occurs in the life of a girl below the country’s age of consent which is 18 years (Ministry of Education, 2020). It is also referred to as adolescent or teenage pregnancy in a girl who is still in the transitional phase between childhood and adulthood – a phase that begins around the same time as puberty (Christian, n.d.) Despite progress in reducing teen pregnancy rates from 18 percent in 2014 to 15 percent in 2022 (Kenya Demographic and Health Survey, 2022), it remains an issue of concern in Kenya. Figure 1 illustrates teenage pregnancy rates by county of women aged 15-19 years who have ever been pregnant, revealing significant disparities across counties. 

First quintile: Nyandarua 5%, Nyeri 5%, Kirinyaga 7%, Murang'a 7%, Vihiga 8%, Nairobi 8%, Tharaka-Nithi 9%, Kitui 9%, Laikipia 9%, Bomet 9%

Second quintile: Machakos 11%, Makueni 11%, Uasin Gishu 11%, Nandi 11%, Kisumu 11%, Wajir 11%, Mombasa 11%, Elgeyo Marakwet 12%, Kiambu 12%, Lamu 14%, Kilifi 13%, Embu 14%, Kisii 14%, Kwale 15%, Kericho 15%, Kakamega 15%, Garissa 15%, Mandera 15%, Nyamira 16%, Isiolo 17%, Nakuru 17%, Trans Nzoia 18%, Tana River 18%, Taita Taveta 18%, Busia 18%, Turkana 19%, Bungoma 19%, Baringo 20%

Third quintile: Siaya 21%, Kajiado 22%, Homa Bay 23%, Migori 23%, Meru 24%, Narok 28%, Marsabit 29%

Fourth quintile: West-Pokot 36%

Fifth quintile: Samburu 50%

The Kenyan Re-entry Guidelines provides clear procedures for schools to follow in their treatment of girls during pregnancy and post-pregnancy. It spells out the steps to be taken when a learner becomes pregnant while in school and enables girls to continue their education while pregnant and after giving birth. It provides for flexible schooling options that allows the girl to remain in school as long as possible before giving birth; unconditional re-admission unless specified otherwise; re-entering at the same grade after assessment; facilitating the recovery of missed lessons to support progression; allowing re-entry to the same school or transfer to another school of the girl's choice; guidance and counselling to ensure the learner has access to age appropriate reproductive health services; and a committal letter for the pregnant girl to re-enter school 6 months after delivery. However, practical considerations, such as childcare and continued learning opportunities during the critical postpartum period, are largely overlooked. Furthermore, the broader issue of preventing unintended pregnancies and effectively re-engaging out-of-school teenage mothers remains inadequately addressed (Population Council, 2016). 

Despite policy intent, enforcement is weak

Driving change through policy requires a strong emphasis on enforcement and accountability.

A significant number of girls who drop out of school due to pregnancy do not return to school after childbirth, as evidenced by research in Muhoroni in Western Kenya (Onyango, Kioli & Nyambedha, 2015). Similarly, in Narok county, only 16 percent of girls who took maternity leave from school re-enrolled after child birth (Marende, 2022). Yet another study in Narok County revealed that the implementation and manner of implementation of the policy is at the discretion of head teachers. The study further pointed to the failure of the policy to account for the significant amount of time lost while out of school, which poses a challenge for teen mothers trying to catch up with their studies upon their return (Azumah et al, 2022). 

The weak enforcement may be attributed to a number of factors including,

  1. Absence of robust monitoring and evaluation (M&E) systems: This frustrates measurement of the impact of the Guidelines on advancing girls’ education post-pregnancy. With no standards or systems of monitoring, policy implementation remains inconsistent and ineffective, and weakens accountability. Evaluating the long-term impact of school re-entry programmes on girls' educational outcomes post-pregnancy is crucial for informing future interventions and policies, but is often overlooked. This lack of oversight results in limited accountability, allowing negligence or non-compliance to go unchecked. Furthermore, the absence of a feedback loop prevents policymakers from making informed adjustments, leading to missed opportunities for policy or programme improvement.

  2. Data deficiency in teenage pregnancy research: The Kenya Demographic Health Survey (KDHS) and National Aids Control Council (NACC) provide valuable insights on teen pregnancies rates. However, there is a critical gap in comprehensive and disaggregated data to fully understand the underlying factors contributing to this problem, as well as the  impact of interventions over time. In addition, very little is known about the lived experiences of pregnant or parenting learners.

  3. Inadequate Support Services:  An aspect often disregarded pertains to the welfare of the infant when a teenage mother returns to school (Wamahiu et al, 2024). Financial challenges after pregnancy, particularly inability to afford childcare costs, are key barriers to school re-entry (Population Council, 2016). In addition, schools often lack the necessary support services, such as child care facilities, healthcare services, and counselling. Appropriate health and social services in learning institutions and health facilities to facilitate implementation of school re-entry post pregnancy are largely missing in schools across the country. There appears to be little investment in sufficient financial or human resources to help in reintegration of teen mothers and effectively supporting them as they continue their education. 

  4. Inadequate Educator Training and Gender Biases: The capacity of the school leadership, teachers and the school community pose significant barriers in their role in re-integrating pregnant and parenting learners. Many teachers and school administrators are not trained in gender-transformative approaches; resist re-enrollment of young mothers into school. Even when allowed re-entry, deep rooted biases - implicit and explicit - lead to stigmatisation and discrimination, creating an environment that is unfriendly for pregnant girls and girl mothers to thrive.

Policy Recommendations

Weak enforcement reinforces discriminatory practices at school and in the community posing significant barriers to girls’ schooling (Wamahiu and Musembi, 2023). The following policy recommendations will help improve the effectiveness of the re-entry process for young mothers, ensuring that they receive the necessary support to reintegrate into the educational system and succeed academically:

  1. Strengthen monitoring and evaluation system: To effectively monitor and evaluate the impact of school re-entry guidelines for pregnant and parenting learners and inform effective policy making, Kenya must invest in robust M&E systems. Technology could be leveraged and the use of digital tools could improve data collection, analysis and dissemination. A strong M&E system will not only measure program impact, but will enable the country to track key indicators, analyse data trends, identify gaps, and optimise support for pregnant and parenting learners.

  2. Enhance data collection on teenage pregnancy:  Data collection should be comprehensive, disaggregated, and regularly updated. In addition, qualitative research should complement quantitative data to provide a deeper understanding of learners' experiences upon returning to school. By collecting comprehensive data disaggregated by demographic and socioeconomic factors, educational outcomes, access to services, barriers and challenges, and long-term outcomes, policymakers and programme implementers can better understand the challenges faced by pregnant and parenting learners and develop evidence-based policy and program improvements. In addition, the data collected should align with the indicators used in the M&E system for maximum impact.

  3. Prioritise sexual reproductive health education in schools: It is crucial to integrate comprehensive and age-appropriate sexuality education into the school curriculum and should be targeted to reach both boys and girls in the school environment. Comprehensive sexuality education (CSE) fulfils children and adolescents' right to age-appropriate knowledge about themselves and their sexual and reproductive health, which is critical for their overall health and well-being (World Health Organization, 2024).
    Additionally, safe spaces should be created within school that facilitate open discussions with learners about sexual and reproductive health in order to help destigmatize such topics and encourage students to seek information and support. Investing in sexual and reproductive health education equips all learners with the foundation for lifelong well-being. By fostering knowledge, skills, and values related to healthy relationships, informed decision-making, and bodily autonomy, this education can empower young boys and girls and potentially lead to a decrease in unintended pregnancies.

  4. Invest in support services: To successfully reintegrate pregnant and parenting learners into the education system, a comprehensive support system is essential. Providing access to mental health professionals and pairing young mothers with mentors who will provide guidance and support should be a focus. This includes establishing dedicated counselling and mentorship programs within schools to address the unique emotional and psychological challenges these young mothers face. These support groups for young mothers would provide them a platform to share experiences, advocate for their needs, and build a sense of community. In addition, access to childcare is paramount, necessitating either institutional on-site childcare facilities or partnerships with local childcare providers to develop integrated models that support both mother and child.
    Flexible learning options, such as part-time enrollment or home-based learning, should also be considered to accommodate the varying needs of learners balancing motherhood and education. Establish community-based support groups for young mothers to connect with others in similar situations. By providing a supportive, inclusive and adaptable learning environment, schools can empower young mothers to continue their education and build a conducive environment for a brighter future.

  5. Mindset shift in educators: Efforts to shift societal attitudes towards pregnant and parenting learners is essential to create a supportive school environment. To foster a gender-transformative learning environment and support young mothers' reintegration, equipping educators with knowledge about adolescent sexual and reproductive health, gender equality and the challenges faced by pregnant and parenting learners is crucial to achieving this supportive school environment. This should encompass gender sensitivity, inclusive gender-responsive pedagogy, and addressing the specific needs of pregnant and parenting learners. By integrating gender-responsive teaching into the curriculum and challenging stereotypes, schools can create a more inclusive atmosphere. Open dialogue about sexuality, pregnancy, and parenting should also be encouraged within the school community to dispel the stigma that returning teen mothers often face from both peers and educators.

Conclusions  

In an ideal world, teenage pregnancy would not occur. However, given the realities of this world, ensuring a girls’ right to education post-pregnancy is imperative. This can only be achieved by addressing both the policy and implementation gaps in Kenya's National Guidelines for School Re-entry. By strengthening support systems, providing comprehensive services, and challenging societal norms, Kenya can create a more enabling environment for young mothers to continue their education. This investment in girls' education not only benefits individual lives but also contributes to a more equitable and prosperous society. While many more strategies may be needed, the recommendations outlined are essential and concerted efforts from policymakers, educators, healthcare providers, community leaders and members, NGOs, international organisations, the private sector, and young mothers themselves  are essential. By working together, we can ensure that regardless of pregnancy, every girl has the opportunity to reach her full potential.

References 

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