Long-standing industrial dispute between the Universities Academic Staff Union (UASU) and public university employers has finally come to a close after the signing of a historic Return to Work Formula (RTWF) on November 5, 2025, in Nairobi.
The agreement brings to an end a seven-week strike that had paralysed learning in public universities and constituent colleges since September, paving the way for the release of billions of shillings owed to lecturers and staff.
At the heart of the deal is the phased release of KSh 3.8 billion before the end of December 2025, forming the first instalment of a verified KSh 7.94 billion owed for the full implementation of the 2017–2021 Collective Bargaining Agreements (CBAs).
The second equal tranche of KSh 3.8 billion will follow in July next year, completing the State’s commitment to settle all pending arrears under the CBAs signed between UASU, the Inter-Public Universities Councils Consultative Forum (IPUCCF), and the Federation of Kenya Employers (FKE).
The Ministry of Education, the Salaries and Remuneration Commission (SRC), and IPUCCF jointly verified the outstanding amounts at a meeting held between October 18 and 21, 2025, coordinated by the Ministry, and later confirmed the figures at Machakos University on October 24, 2025.
According to the official document, the agreement states that “the Government has agreed to release KSh 7,761,931,687 inclusive of the employer pension component to Public Universities and Constituent University Colleges in two equal tranches of KSh 3,880,965,843.50 each, the first by December 31, 2025, and the second in July 2026.”
The verification process brought together representatives of the Ministry of Education, the IPUCCF, UASU, KUSU, and KUDHEIHA, leading to consensus on figures that had been a source of contention for years.
Moreover, the 2017–2021 arrears, the Return to Work Formula resolved pending issues from the 2021–2025 CBA, marking the payment of Phase Two arrears of KSh 2.73 billion as settled pending verification by respective Joint Local Implementation Committees.
This means that within weeks of the signing, the government will have released over KSh 6.6 billion in total, unlocking pay arrears that had accumulated over several years of delayed negotiations and court battles.
The document notes that “any withheld salaries, earnings, accrued benefits, entitlements and union dues for the months of September and October 2025 shall be released upon signing of this agreement, and such payment shall be made not later than Monday, 10 November 2025.”
It further guarantees that “the salaries and accrued benefits for the first five days of November 2025 shall not be lost.”
These assurances were key in persuading lecturers to resume work immediately. All unionisable employees who had downed their tools were assured that they would not be victimised, lose benefits, or face disciplinary action for their participation in the industrial action.
The agreement explicitly provides that “all staff, including those on contract, shall receive their full pay and benefits, and the industrial action shall not in any way affect the earnings or entitlements of existing staff.”
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The Return to Work Formula also compels university managements to withdraw all disciplinary actions taken during the strike.
“Any disciplinary action commenced during the pendency of the industrial action shall be deemed withdrawn, and all disciplinary or intended disciplinary actions, including but not limited to show-cause letters, warning letters, lockouts, interdictions, suspensions, or dismissals, are hereby withdrawn unconditionally and expunged from the records of affected employees,” the document reads. Employees are to resume their previous roles “with full retention of seniority, benefits, salary scales and accrued rights without penalties.”
In a strong reaffirmation of goodwill, the agreement states that both sides recognise “the importance of restoring normal operations in Public Universities and Constituent University Colleges while addressing the issues raised by UASU in good faith.”
According to the signatories, this spirit of cooperation was essential to protecting the academic calendar and safeguarding the welfare of university staff across the country.
The Return to Work Formula further outlines the method of tax computation on the arrears, stipulating that “salaries earned in the FY 2017/2018, 2018/2019 and 2019/2020 will be subject to tax rates prevailing in the respective years.”
This clause ensures that staff are not penalised through higher current tax rates when receiving pay from previous financial years, a significant concern among employees.
Universities that had previously diverted CBA arrears to recurrent expenditure are also required to regularise their accounts.
The document warns that universities that did not fully utilise their earlier allocations of KSh 2.2 billion for the 2017–2021 CBA, but instead used them for other salary costs, must “immediately top up when the Government releases the funds.”
This clause signals a new era of financial discipline in university management, with the National Implementation Committee mandated to monitor compliance.
The implementation of the agreement will be overseen by this National Implementation Committee, which shall also monitor the remittance of the pension component and ensure adherence to the provisions of the CBAs.
Additionally, the parties agreed to fast-track the next round of negotiations for the 2025–2029 CBA, committing to conclude them within thirty days of signing the formula to avoid a recurrence of delayed settlements.
The Return to Work Formula was signed by key leaders representing both the government and university stakeholders.
On behalf of the Ministry of Education, Dr Beatrice Muganda Inyangala, Principal Secretary for the State Department for Higher Education, signed the agreement. Representing IPUCCF were Prof. Bosire Monari Mwebi, Chairperson of the Council of the University of Kabianga and Chairperson of IPUCCF; Prof. Daniel Mugendi, Vice-Chancellor of the University of Embu and Chairperson of the Vice-Chancellors’ Committee; and Prof. Fred Simiyu Barasa, Vice-Chancellor of Taita Taveta University and Chairperson of IPUCCF-JNC.
The signing was witnessed by Prof. Romanus Odhiambo of Meru University of Science and Technology, Prof. Kamau Ngamau of the Co-operative University of Kenya, and Prof. Mary Ndung’u of Kirinyaga University.
On behalf of UASU, the document was signed by Dr Constantine Wasonga, National Secretary-General; Grace Nyongesa, National Chairperson; and Dr Janepha Kumba, National Treasurer. It was witnessed by Dr Francis Odundo and Dr Jane Michael, both National Trustees, alongside John Malii, also a National Trustee.
During the signing ceremony, Education Cabinet Secretary Hon. Julius Migos Ogamba announced the end of the industrial stalemate. “Together with the Principal Secretary for Higher Education, Dr Beatrice Muganda Inyangala, we have this afternoon witnessed the signing of a Return-to-Work Formula between public universities and university staff unions. The signing ceremony, held at the Ministry’s Jogoo House B offices, marks the end of the industrial action that UASU, KUSU, and KUDHEIHA had called. Universities will now resume normal operations, with appropriate measures in place to ensure that students recover lost academic time,” said the Cabinet Secretary.
Also present was Prof. Julius Bitok, Principal Secretary for the State Department for Basic Education, who commended both parties for their patience and professionalism in resolving the dispute.
The agreement emphasises that all pending cases related to the industrial action shall be settled by adopting the consent agreement in the Employment and Labour Relations Court, with each party bearing its own costs. It further directs that “the Union shall immediately call off the industrial action upon execution of this Agreement,” which UASU did on the same day, allowing lectures and examinations to resume.
With KSh 3.8 billion expected to be deposited in university accounts by the end of December, lecturers and non-teaching staff are anticipating not only financial relief but also institutional reforms. The Ministry of Education has pledged strict oversight to ensure that every coin reaches its intended beneficiaries.
“The Government has agreed to the full implementation of the CBAs as verified and confirmed by all parties,” reads the final clause of the document.
As learning resumes across campuses from Nairobi to Turkana, the billions flowing back into the system carry more than just arrears; they carry the hope that Kenya’s higher education will finally find stable ground.
By Joseph Mambili
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