Secondary School Fee Abolition in Sub-Saharan Africa: Taking Stock of the Evidence

Abstract

Several African countries have abolished secondary school fees in recent years, but there is no systematic evidence on the effectiveness of these initiatives. In this study, we take stock of free secondary education (FSE) initiatives in the region and review their impact on equitable access and the quality of teaching and learning, as well as their cost-effectiveness. We start by discussing the theoretical arguments for and against fee abolition. Second, we look at aggregate statistics on enrollment and transition rates, and find that primary school completion remains far from universal in most countries in the region, meaning that most low-income children are currently ineligible for free secondary education. Third, we provide a comprehensive overview of existing FSE policies in sub-Saharan Africa, showing that almost half of all countries in the region have abolished secondary school fees in the last two decades. Finally, we systemically review the empirical evidence on the impact and effectiveness of recent FSE initiatives. We conclude that free secondary education is an appropriate long-term goal for education systems but can be costly and inequitable in the short run, especially if it diverts resources from primary education. Our review suggests four concrete recommendations for policymakers, which are broadly aligned with the principle of ‘progressive universalism’ in improving access to education.

The Intended and Unintended Effects of Secondary School Fee Abolition: Evidence from Ghana’s Free Senior High School Policy

“…School fees are an important barrier to accessing education, particularly for poor girls, and the Free SHS policy has already resulted in a substantial increase in enrolment. On the other hand, it is likely that fee abolition primarily benefits children from comparatively well-off families, who are more likely to complete basic education (Gruijters et al, 2023;Ohba, 2011). In asking this question, we particularly focus on how and to what extent the Free SHS policy has enabled improved access and participation of marginalized and underrepresented groups.…”

“…The Ghanaian government abolished fees for Senior High School (SHS) as of the 2017-18 school year, in line with the ruling party's campaign promise. Under the new policy, the government covers all fees for students admitted to public senior and vocational high schools, including boarding fees, meals, textbooks, and other charges, making it the most comprehensive Free Secondary Education (FSE) policy in the region (Gruijters et al, 2023). This major policy initiative provides a unique opportunity to study the impact and implementation of secondary school fee abolition in real time and to draw lessons for policymakers in Ghana as well as other countries that are considering the abolition of secondary school fees.…”