In 1996, Uganda initiated a significant reform in its education sector with the introduction of Universal Primary Education (UPE), followed by the introduction of Universal Secondary Education (USE) in 2007.  The two initiatives were designed to ensure that all children have access to basic education; and to make access to education equitable to eliminate disparities and inequalities. This is line with United Nations Sustainable Development Goal 4 target for inclusive and equitable quality education and promote lifelong learning opportunities for all.

The main objective of UPE and USE was to increase enrollment rates across the country by eliminating school fees and related costs that hindered access to both primary and secondary education for many households.

The Issue

Whereas enrollment gains have been made – since UPE introduced, primary enrollment rates have increased from 5.3 million in 1997 to 8.6 million in 2023 – a key challenge of hidden costs persists despite the “free” label attached to UPE and USE.  These manifest in different charges by schools in the form of development fees, building fees, uniforms, Parent-Teacher Association fees, and lunch fees.  The persistent hidden costs can be attributed to.

Inadequate Capitation grant

Despite Uganda’s free education policy, the government’s capitation grant remains too low, making it hard for schools to operate effectively.  The government provides a capitation grant intended to fund essential operational needs such as instructional materials (35%), co-curricular activities (20%), school management (15%), administration (10%), and contingency expenditures (20%).  Government currently allocates UGX 6,667 per learner per term for primary schools, UGX 58,000 per term for O level students, and UGX 90,000 for term for each A-level student. This funding is inadequate to manage school operations and service delivery given the increase in prices of goods and services required to operate schools.  As a result, schools, especially those in urban areas, charge additional fees for lunch, development, and teacher allowances.  

Delayed release of the capitation grant

While it is ideal that the schools get the capitation grant funds before the term opens, there are usually delays in the disbursement of the funds.  These persistent delays not only undermine the effectiveness of school operations and management but also force headteachers to shift the financial burden onto parents further deepening inequality in access to education.

Insufficient staffing in public schools

In addition to funding gaps and delayed grant disbursements, inadequate staffing continues to pile pressure on parents.  Inadequate staffing continues to undermine the quality of education at both primary and secondary levels in Uganda. The current pupil–teacher ratio (PTR) in government primary schools is 55:1, exceeding the UNESCO-recommended maximum of 40:1. At secondary level, the student–teacher ratio (STR) stands at 31:1 exceeding the recommended 30:1. With too few teachers and insufficient government support, many schools are left with no choice but to introduce extra charges to fill the gaps. This reality not only exposes the chronic underfunding of the education sector but also reveals how the cost of these systemic failures is quietly transferred to parents, undermining the very essence of free universal education.

Hidden costs still hinder access to education at primary and secondary school levels in Uganda. Photo/EPRC

The way forward

The Government should consider the following measures to bridge the gap between policy and practice in Universal primary Education (UPE) and Universal secondary Education (USE) schools.

Increase the capitation grants for both UPE and USE schools to meet the levels recommended the National Planning Authority (NPA).  For example, raise the per-pupil grant for UPE from the current UGX 20,000 annually to at least UGX 59,000 to reflect the actual cost of delivering quality education. This would ease the financial burden on families and help ensure that basic education is free and accessible, especially for learners from poor and vulnerable households.

Clearly define permissible school fees in national policy: This will prevent schools from charging arbitrary or hidden fees and protect learners from being excluded due to financial hardship.  The policy should also include targeted financial support for vulnerable families.

Require full transparency and accountability in school fee use: All schools should be obligated to publicly disclose how any collected fees are used, ensuring responsible management of school finances and building trust among parents and communities.

Conclusion

While Uganda’s UPE and USE programs were introduced with intentions aimed at promoting equitable access to basic education, the persistence of hidden and extra school-related costs continues to undermine their goals.  Despite government capitation grants, underfunding, delayed disbursement, and understaffing have forced schools to rely on household contributions, disproportionately affecting the poor and vulnerable learners.  Bridging the gap between policy and practice, therefore, requires urgent and sustained government action, including increased capitation grants, clear regulation of school fees, and school management accountability and transparency.  Only through such reforms can Uganda realize the true promise of free and universal education for all its children.

Featured Photo credit: UNICEF UGANDA