The formal education system in Malawi follows an 8–4–4 structure for primary, secondary and tertiary education levels, respectively. The broader Early Childhood Development (ECD) encompasses the age range of 0-8 years, with ECD centres primarily focusing on providing services to children aged 3-5 years. Primary education spans 8 years, with entry at the age of 6. At the end of primary education, students take a final examination for the Primary School Leaving Certificate of Education (PSLCE), which determines their eligibility for entry into secondary schools.[1]
“Since 2010 to 2024, these fees have been increasing beyond the reach of ordinary Malawians.“
The Board, established under section 3(1) of the Malawi National Examinations Board Act (MANEB Act), is responsible for setting up the PSLCE and certifying students as eligible for secondary school education. Apart from the Board’s other sources of financing, the Act provides that, for the furtherance of its functions and powers, the Board may, with the Minister’s approval, make regulations prescribing examination and test fees, as well as other charges payable to the Board.[2] These funds shall comprise fees and charges paid by candidates for examinations and test users.[3]
According to Kattan and Burnett, user fees are not limited to tuition fees, but also implicitly include textbook fees or costs, rental payments, compulsory uniforms, Parent-Teacher Association (PTA) dues, and various special fees such as exam fees, as well as community contributions to district education boards.[4] In the case of MANEB, this refers to the examination and test user fees that candidates pay before taking their national exams at various levels. Since 2010 to 2024, these fees have been increasing beyond the reach of ordinary Malawians.[5] In accordance with the mandate and provisions in the MANEB Act, the board has been collecting these user fees from students taking the PSLCE, Junior Certificate of Education (JCE), as well as the Malawi School Leaving Certificate of Education (MSCE).
Impact of user fees
When free primary school education was introduced in Malawi in 1994, there was a surge in enrollment of approximately 51%. This was a clear indicator that many parents struggled to provide their children with an education due to the fees. Although freee primary school education was introduced, there are still hidden costs that parents and their children must cover to access an education. School-related costs, such as compulsory school uniforms, community contribution, school supplies, and accommodation, are among them.[6] While impoverished families struggle to access these, MANEB demands that students pay the user/examination fees to sit for their final national exam at different levels; failing to do so, they are not allowed to take these exams. This assertion is evident in the fact that, in 2023 alone, over 29,800 candidates for the PSLCE, Junior Certificate Education, and MSCE failed to pay their examination fees.[7]
“If there is anything that the COVID-19 pandemic taught the educational sector, it is that when schools are not accessible, children fall prey to all sorts of abuse.“
Payment for the examination fees for the PSLCE has been denied by MANEB. The Board insisted that what is requested from the primary school learners is a fee for the production of their identity cards to sit for the exam.[8] However, the Board’s own publication indicates that it needs students to pay for an examination fee that includes fees per subject, entry fee, form fee, administration fee and Centre fee.[9] Although the amount (approximately 2 USD for PSLCE) being asked for this exercise can be considered manageable and a one-time cost, it is challenging for over 72% of the population who live below the 2.15 USD international poverty line.[10]
It is evident that with these fees and other related costs, children will likely drop out of school. As there are no prospects for taking their exams due to this challenge, students do not see the need to work hard and prepare for pending exams. Bearing this in mind, the likelihood of dropping out is imminent.
If there is anything that the COVID-19 pandemic taught the educational sector, it is that when schools are not accessible, children fall prey to all sorts of abuse. It has been reported that due to the closure of schools during COVID-19, teenage pregnancies increased, early marriages became widespread, child labour became rampant, and interest in school declined. It is, therefore, more probable that the failure to pay these user fees will result in a similar impact on the lives of children and their families.
Implications of user fees
By continuing to charge these fees, which will have adverse effects on children in Malawi, the right to education that the Malawi Government has committed to providing to children is compromised. Evidently, the failure of children to access education due to these fees constitutes a violation of their right to education, which Malawi is obligated to provide, having endorsed the Sustainable Development Goals (SDG). Through SDG 4, Malawi commits itself to ensuring free, equitable, and quality primary and secondary education.
“Their access to education promises them a change in situation for themselves and their families.“
Additionally, these fees appear to be a threat to the aspirations that Malawi envisions through the Free Primary Education Policy, as well as the Malawi Vision 2063. In these policy and strategic documents, a guarantee of quality education, skills development, and decent work opportunities is provided within a youth-centric vision.[11] Thus, such an aspiration is most likely to be unattainable if the base for an equitable and meaningful education is not afforded to the children.
It is evident that the demand for these user fees pushes the already vulnerable children into dire impoverishment and leads to inequality at different levels. As children try to access education, it is not only for the prospects of a better future and a promise for employment that is latently communicated through school. Their access to education promises them a change in situation for themselves and their families. Therefore, if they have failed to access education and have been unable to sit for their exam due to these fees, they are denied an opportunity to acquire a certificate, which is at least a key to an equitable society.
[1] National Education Sector Investment Plan 2020–2030 (Government of Malawi 2020) 5.
[2] Malawi National Examinations Board Act 2014 art 9(2)b.
[3] Malawi National Examinations Board Act 2014 art 10(1)c.
[4] Raja Bentaouet Kattan and Nicholas Burnett, User Fees in Primary Education (World Bank, July 2004) 6.
[5] In 2025, students are expected to pay a minimum of K5000, for PSLCE, K11130 for JCE and K18 750 for MSCE). See MANEB, Examinations Registration < https://www.maneb.edu.mw/examinations/examinations-registration.html#:~:text=PSLCE%20(External%20Candidates),Centre%20fee%20per%20Candidate%201%2C750 > accessed 09 May 2025.
[6] In places where schools are far, communities arrange for self boaring facilities for learners within the vicinity of the school. These are independent arrangements by the communities and are not funded by the government. See also Raja Bentaouet Kattan and Nicholas Burnett, User Fees in Primary Education (World Bank, July 2004) 6.
[7] Nation online ‚‘ No ‘examination fees’ in primary school—Maneb‘ (Our Reporter, Nation Online, January 11, 2024) https://mwnation.com/no-examination-fees-in-primary-school-maneb/ accessed 04 April 2025.
[8] Nation online ‚‘ No ‘examination fees’ in primary school—Maneb‘ (Our Reporter, Nation Online, January 11, 2024) https://mwnation.com/no-examination-fees-in-primary-school-maneb/ accessed 04 April 2025.
[9] MANEB, Examinations Registration < https://www.maneb.edu.mw/examinations/examinations-registration.html#:~:text=PSLCE%20(External%20Candidates),Centre%20fee%20per%20Candidate%201%2C750 > accessed 09 May 2025.
[10]African Development Bank, Malawi Economic Outlook < https://www.afdb.org/en/countries/southern-africa/malawi/malawi-economic-outlook> accessed 04 April 2025.
[11] National Planning Commission (NPC), Malawi 2063 (MW2063) (2020) https://malawi.un.org/sites/default/files/2021-01/MW2063-%20Malawi%20Vision%202063%20Document.pdf accessed 04 April 2025.
