Devolution at 15: Has power really moved closer to the people?
There have been measurable gains, particularly in health infrastructure, early childhood education and local development.
Fifteen years after Kenya's 2010 Constitution established a devolution framework and 13 years since the first county governments began operating, devolution has fundamentally altered how government services are delivered to citizens. Services that were primarily managed from the national capital, Nairobi, are now handled closer to communities, with counties assuming responsibility for healthcare, local roads, markets, water services, agriculture, trade, and early childhood education.
This shift has generated billions of shillings for counties. However, the question remains whether this transfer of power has led to improved services, greater responsiveness, and more influence for ordinary Kenyans. The latest State of Devolution Address and government oversight reports present a mixed picture. There have been measurable achievements, particularly in health infrastructure, early childhood education, and local development.
Nevertheless, counties continue to rely heavily on transfers from the national government, struggle to generate their own revenue, and face challenges related to pending bills, corruption, public participation, and the transfer of functions. Consequently, citizens' experiences of devolution can vary significantly depending on their location and specific needs.
The most noticeable change has been the creation of a permanent county-level government that now oversees services affecting daily life. Since 2013, counties have taken over healthcare responsibilities. The State of Devolution Address reveals an 11.7% increase in county health allocations, rising from Sh137.57 billion to Sh154.58 billion.
The number of public health facilities increased from 6,649 to 6,740, and hospital beds grew by 2.9% to 49,324. ICU bed capacity expanded by 9% to 345, and the ambulance fleet grew from 566 to 583. Health outcomes have improved, with a 6.8% decrease in maternal deaths (from 2,851 to 2,656) and a 19.7% reduction in teenage pregnancies (from 6,909 to 5,777).
Joel Mugusi, a resident of Kisii County, attests to the tangible benefits of devolution. "Healthcare services have improved in Kisii County due to devolution. I no longer need to travel to Nairobi for affordable, quality care. Our referral hospital is well-equipped, and services are excellent." However, the health landscape is not entirely positive.
The same report indicates a 23% decline in skilled births, falling from 709,281 to 543,237, and a decrease in fourth antenatal care visits. The Council of Governors attributes these declines to changes in maternity service delivery models and reduced accessibility at primary healthcare facilities. These findings illustrate that increased investment and infrastructure do not automatically guarantee consistent access or improved outcomes.
Counties now manage approximately 182,832 kilometers of roads, accounting for 76% of Kenya's total road network. However, only about 4% of the county road network is paved. In the 2025/26 fiscal year, counties received Sh31 billion for road construction but only allocated Sh3.6 billion from the Road Maintenance Levy Fund. For Ruth Momanyi, a Kisii resident, the improved road network has enhanced mobility and economic growth.
"The road improvements in Kisii County have made movement easier and faster, boosting the county's economy," she notes. Education is another area where the shift is evident. Pre-primary enrollment rose by 7.1% to over 3.1 million learners, and counties have invested in Early Childhood Development Education centers and school feeding programs.
Yet, concerns remain regarding teacher recruitment, learning materials, and the quality of services in some regions. While the expansion of county services has involved substantial resources from the national government, counties remain dependent on these transfers. Since 2013, counties have received about Sh3.2 trillion through the equitable share, which has continued to rise, reaching Sh428 billion for 2026/27.
Despite this increase, none of Kenya's 47 counties met their own-source revenue targets in the 2024/25 financial year. Nairobi, for instance, collected only Sh2.1 billion against a Sh20 billion target, while Kisumu and Machakos fell short of their targets as well. This dependence highlights a central tension in devolution: counties have acquired significant responsibilities, yet their ability to finance these responsibilities independently remains limited.
When functions are transferred without accompanying resources, counties face challenges in delivering services effectively. Council of Governors Chairperson, Ahmed Abdullahi, emphasizes the ongoing difficulties. "Counties are still struggling with the transfer of functions, yet there are no funds to match this transfer," he asserts.
President Ruto acknowledges this issue, stating, "Devolution cannot succeed when functions move, but resources remain behind." This dispute underscores one of the fundamental challenges of the 2010 Constitution and the ongoing debate about the success of devolution in Kenya.
Written by urgent.news from Capital FM Kenya's reporting — not their text. Machine-written — may contain errors; check the original before relying on it.
