The shocking journey of gender equality from Kibaki's foundation to Ruto's paradox
Presidents Mwai Kibaki (2022-13), Uhuru Kenyatta (2013-22) and William Ruto (2022-present).
What you need to know:
- Kenya's two-decade journey toward gender equality has been shaped by three presidents, each leaving distinct marks on women's rights.
- From Kibaki's foundational reforms and Kenyatta's expansion of women in leadership to Ruto's mixed record of achievements and unfulfilled promises, the constitutional guarantee of gender parity remains unrealised.
- Despite significant progress in healthcare, education, and economic opportunities, the elusive two-thirds gender rule stands as a powerful symbol of the gap between constitutional aspirations and political implementation.
Wanjiku* walks confidently into a government office in Nairobi, her business proposal tucked under her arm. Twenty years ago, her mother could only dream of owning land or securing a business loan without a male relative's signature. Today, Wanjiku represents a new generation of Kenyan women—educated, ambitious, and aware of their constitutional rights—yet still navigating barriers that have proved stubbornly resistant to change.
The story of gender equality in Kenya is written in presidential legacies, constitutional amendments, and the persistent courage of women who refused to accept the status quo. From the corridors of power to rural homesteads, this journey has transformed millions of lives, even as it continues to face roadblocks and detours.
President Mwai Kibaki's revolutionary reforms laid the groundwork, establishing constitutional protections and economic opportunities that gave women like Wanjiku's mother their first taste of financial independence. Under President Uhuru Kenyatta, doors to leadership swung wider, while healthcare initiatives ensured that childbirth no longer carried the devastating financial burden it once did for countless families.
Now, as President William Ruto navigates between bold promises and implementation challenges, Wanjiku and her peers find themselves at a crossroads—beneficiaries of two decades of progress, yet still waiting for the full realisation of gender equality enshrined in Kenya's constitution.
This is not just a chronicle of presidential achievements and shortcomings. It is the living, breathing story of Kenya's women—their struggles, triumphs, and unwavering determination to claim their rightful place in building the nation's future. As International Women's Day invites global reflection on gender equality, Kenya's experience offers powerful lessons about the difference visionary leadership can make—and the work that remains when political will falters.
Mwai Kibaki (2002–13) - The architect of change
Gender equality advocates consistently describe President Kibaki as "the leader who opened doors for women's empowerment through policy reforms." This reputation was earned through concrete actions that transformed the landscape for women across Kenya.
Perhaps most significantly, it was during his tenure that Kenya attained a new Constitution, widely celebrated for its progressive approach to gender equality. This landmark document explicitly promotes women's access to leadership positions in public spaces, guarantees their right to own land and property, and provides protection from violence and harmful practices that had long undermined women's rights and dignity.
Former President Mwai Kibaki.
The Women Enterprise and Development Fund (WEF) stands as one of Kibaki's most impactful initiatives for economic empowerment. In 2006, while officially opening the last session of the 9th Parliament, he proposed creating this dedicated fund to support women entrepreneurs. His administration followed through on this commitment, with the Ministry of Finance allocating Sh1 billion to the fund in the 2007/2008 financial year. This investment enabled thousands of women to access business loans, many for the first time in their lives.
Education reforms under his leadership dramatically expanded opportunities for girls across Kenya. His bold decision to launch free primary education in 2003, followed by free secondary education in 2008, removed critical financial barriers that had historically kept many girls out of school. The impact was measurable and significant: according to the Global Partnership for Education, by 2011, girls' completion rates reached nearly 73 percent, approaching the boys' rate of 75 percent. The gross enrolment rates reflected even greater progress toward gender parity, with boys at 115 percent and girls close behind at 114 percent.
Kibaki's government took unprecedented action to address sexual and gender-based violence (SGBV) through comprehensive legislation. During his administration, Parliament enacted several crucial protections: the Sexual Offences Act (2006), the Counter Trafficking in Persons Act (2010), and the Prohibition of Female Genital Mutilation Act (2011). Together, these laws created a legal framework that criminalised practices previously dismissed as private or cultural matters.
Women-headed households gained vital support through the Cash Transfer to Orphans and Vulnerable Children program, launched in 2004. This initiative provided financial assistance to families caring for orphaned children, with many beneficiaries being households led by women.
Healthcare access improved significantly under his leadership. In 2004, he implemented the "10/20 policy," abolishing user fees at the primary level and introducing nominal registration fees of just Sh10 and Sh20 in public dispensaries and health centres, respectively. This policy dramatically improved women's access to essential health services. By 2007, his administration had announced free deliveries in all public healthcare facilities—though the implementation of this program remained inconsistent across different regions.
Despite these substantial achievements, Kibaki's record on women's political representation revealed significant gaps. His cabinet featured only a handful of women in key positions: Charity Ngilu as Minister of Health, Sally Kosgei in Agriculture, Martha Karua leading the Justice Ministry, and Beth Mugo. This fell considerably short of the requirements later enshrined in Article 27(8) of the Constitution, which mandated that no more than two-thirds of members in elective or appointive bodies should be of the same gender.
The Constitution's Fifth Schedule had given Parliament five years to enact legislation promoting representation of marginalised groups under Article 100, with women prominently included. Yet when his term ended, this promise remained unfulfilled—the two-thirds gender principle had been written into law but not implemented in practice, leaving a critical piece of his gender equality legacy incomplete.
Uhuru Kenyatta (2013–22) - The champion
During his tenure, President Uhuru Kenyatta took the baton handed over by President Kibaki, expanding opportunities for women across Kenya. Among gender equality advocates, he earned a reputation as a "darling" to Kenyan women. Powerful women who served in his administration frequently described him as "more accessible and a good listener to their pleas, as well as responsive" to women's concerns.
His decade in power marked an unprecedented period for women in leadership. For the first time in Kenya's history, women held truly powerful and influential positions in government. He appointed seven women to ministerial dockets in his 22-member cabinet during his second term, an increase from five women among 20 ministers in his first term. These appointments were not merely symbolic—women led crucial ministries responsible for Kenya's diplomatic relations and security stability.
Retired President Uhuru Kenyatta.
In his first term, Raychelle Omamo broke barriers as the Cabinet Secretary (CS) for Defence—traditionally considered a male domain—while Amina Mohamed headed the Foreign Affairs ministry. Kenyatta appointed women to other substantive ministries typically dominated by men, including Phyllis Kandie (East African Community, Labour, and Social Protection), Judy Wakhungu (Environment, Water, and Natural Resources), and Charity Ngilu (Lands, Housing, and Urban Development). Ngilu later resigned in 2015 following Kenyatta's directive for officials named in the Ethics and Anti-Corruption Commission report to step aside pending investigations.
His second term saw strategic reshuffling that maintained women in key positions. Raychelle Omamo initially retained her Defence portfolio before moving to Foreign Affairs. Monica Juma, originally appointed as Foreign Affairs CS, was later reassigned to the Energy ministry. Kenyatta also maintained Amina Mohamed in his cabinet, first appointing her to the Education docket before moving her to Sports. Other significant female appointments included Sicily Kariuki as Health CS (later moved to Water, Sanitation & Irrigation), Farida Karoney as CS for Lands and Physical Planning, and Betty Maina as CS for Industrialisation, Trade, and Enterprise Development.
In a strategic move, Kenyatta combined the Ministry of Public Service—previously led by a male minister—with Gender and Youth Affairs, appointing Prof. Margaret Kobia to the expanded role. This consolidation continued in 2021 when he restructured the ministry into what rights advocates termed a "power ministry," transferring the Youth Affairs docket to the ICT ministry while broadening Prof. Kobia's mandate as CS for the Ministry of Public Service, Gender, Senior Citizens Affairs, and Special Programs.
Economic empowerment for women received significant attention under Kenyatta's administration. In 2013, he launched Access to Government Procurement Opportunities, which established an express quota requiring 30 percent of government tenders be allocated to women, youth, and persons with disabilities. That same year, following through on an election pledge made during presidential debates, he unveiled the Uwezo Fund to provide affordable financing to women, youth, and persons with disabilities for business and enterprise development.
Further expanding financial opportunities, in 2015 Kenyatta launched the National Government Affirmative Action Fund. This initiative, administered by women members of the National Assembly (popularly known as Woman Representatives), provided support for women, youth, persons with disabilities, and vulnerable groups through various social and economic empowerment programs.
Healthcare for women saw transformative improvements under Kenyatta's leadership. In 2013, he initiated free maternity services, allowing women to deliver at no cost in public hospitals. This program evolved in 2016 into the comprehensive Linda Mama program, which required expectant mothers to register with the National Health Insurance Fund to benefit from a 12-month program covering antenatal and postnatal care, as well as childcare.
During the Covid-19 pandemic, Kenyatta demonstrated particular sensitivity to women's vulnerabilities. Rights advocates described him in the context of gender equality during this crisis as "a listening, cautious, and caring President, forever appreciated." Responding to concerns about increasing teenage pregnancies, he directed the National Crime Research Centre to investigate their prevalence along with sexual and gender-based violence (SGBV) amid the pandemic. His government also classified shelters for violence survivors as essential services, exempting them from movement restrictions during lockdowns.
Not all of Kenyatta's positions were universally celebrated. His remarks during the 2022 Jamhuri Day celebrations sparked debate when he raised concerns about the rise of single-parent households, which he connected to teenage pregnancies. In this context, he made 12 commitments aimed at expediting efforts to end female genital mutilation (FGM) and all forms of GBV by 2026. However, implementation of these commitments has been hampered by funding shortages and what rights advocates describe as "a lack of political goodwill."
His ambitious target to eradicate FGM by 2022 went unfulfilled, though progress was measurable—the prevalence declined from 21 percent in 2014 to 15 percent in 2022.
His efforts in advancing gender equality earned international recognition. In 2022, just eight weeks before the end of his presidency, he received the prestigious African Gender Award, bestowed by a network of over 55 civil society organisations across Africa under the Gender Is My Agenda Campaign. This honour placed him alongside Paul Kagame (Rwanda) and Hage Geingob (Namibia), the only two male presidents previously given the same award in 2007 and 2017, respectively. Ellen Johnson Sirleaf (Liberia) was the fourth president to receive this recognition, having been honoured in 2011.
Despite these achievements, Kenyatta's presidency was not without significant shortcomings regarding gender equality. Most notably, like his predecessor, he failed to mobilise legislators to pass the two-thirds gender principle, which would have ensured fair representation of women in elective and appointive positions. This constitutional promise remained unfulfilled when he left office in 2022.
William Ruto (2022-present) - The paradox
President William Ruto's relationship with Kenyan women has been characterised by both notable achievements and significant disappointments. Women's rights advocates describe him as "heavily guarded, making access for conversations limited to a few individuals with longstanding political connections"—a stark contrast to his predecessor's accessibility.
In combating female genital mutilation (FGM), Ruto's administration has demonstrated tangible commitment. After promising to increase funding to the Anti-FGM Board and fully implement the anti-FGM law, his government delivered on this pledge. The board's budget rose substantially to Sh248 million in the 2023/2024 financial year, more than doubling from Sh102 million in the previous fiscal period.
Gender-based violence, particularly femicide, has received heightened attention under His leadership. In December 2024, his government launched a national three-year initiative called 'Safe Homes, Safe Spaces' specifically designed to address the alarming rise in femicide cases. During the official launch in Kakamega, the Prime Cabinet Secretary (PCS), who also serves as the acting CS for Gender, announced that training would include relevant stakeholders, including boda boda operators who play a crucial role in community safety. President Ruto had previously committed Sh100 million to this campaign.
President William Ruto..
The administration's response to gender-based violence expanded further when PCS Mudavadi announced that the Inspector General of Police had established a specialised unit for missing persons within the Directorate of Criminal Investigations' homicide unit to specifically address femicide cases. Building on these efforts, Dr Ruto established a 42-member Technical Working Group on GBV, including femicide, which was formally gazetted on January 10, 2025. This task force received a 90-day mandate to address ten critical issues, including identifying trends, hotspots, and causes of gender-based violence and femicide.
Healthcare for women and children has seen notable progress during his tenure. He fulfilled his campaign pledge that his government would employ a cost-sharing formula to deploy adequate community health workers (CHWs) and ensure they receive regular stipends. These workers, central to maternal and child health, promote essential practices including breastfeeding, child nutrition, family planning, and immunisation. In 2023, he unveiled the deployment of 100,000 CHWs—rebranded as community health promoters—each equipped with essential knowledge and tools, assigned to serve at least 100 households, and provided with a monthly stipend.
Despite these achievements, many rights advocates have drawn a stark comparison, likening President Ruto's tenure thus far to "a child who has taken steps forward only to fall back to crawling, with no hope of walking again." This disillusionment stems largely from the exceptionally high expectations he created during his campaign, when he promised Kenyan women a "significant revolution" in gender equality.
One of the most glaring unfulfilled promises concerns cabinet representation. In his manifesto, Ruto committed to achieving 50-50 gender representation in his cabinet—a pledge he has failed to honor. Of the 22 Cabinet Secretaries he appointed, including a Prime Cabinet Secretary, only seven were women. He did designate three women to top positions in his government: Monica Juma as National Security Advisor, Harriet Chiggai as Women's Rights Agency Advisor, and Mercy Wanjau as Secretary to the Cabinet.
This pattern of unfulfilled commitments continued when he dissolved his initial cabinet on July 11, 2024, following anti-government protests led by Gen Z activists. In forming his second cabinet, he again failed to maintain his campaign commitment to gender parity.
Financial inclusion for women has similarly fallen short of campaign promises. Ruto had vowed to allocate 50 percent of the Hustler Fund to support women-owned micro and small enterprises. While the fund has indeed been established under the name 'Financial Inclusion Fund,' specific guidelines for this promised allocation remain absent. The fund currently offers both group and individual micro-enterprise loans, with groups eligible to receive up to Sh1 million to be repaid within six months at a seven percent interest rate. Five percent of the approved amount is allocated to the group members' savings scheme, with defaulters facing a penalty rate of 1.5 percent.
Other campaign promises remain entirely unfulfilled, such as his pledge to provide new mothers with a three-month free supply of diapers—a commitment that resonated strongly with women voters but has not materialised since his election.
The two-thirds gender rule, a constitutional requirement that has eluded implementation across multiple administrations, received particular emphasis during Ruto's campaign. During his inauguration speech at Moi International Sports Centre in Kasarani, Nairobi, he stated: "On the matter of gender parity, I am committed to the two-thirds gender rule as enshrined in our Constitution. I will work with Parliament to fast-track the various legislative proposals and establish a framework that will resolve this matter expeditiously, as promised in our manifesto."
His timeline for implementation was even more specific during the launch of the Women Charter in June 2022, when he promised: "Within three months of the Kenya Kwanza rule, we will put mechanisms in place to actualise the two-thirds gender rule and immediately operationalise that mechanism so that women don't have to wait any longer."
As Ruto's administration approaches its third year, the two-thirds gender bill has yet to be introduced in Parliament. There has been some procedural progress, however. On August 15, 2023, then-Gender CS Aisha Jumwa gazetted a 23-member multi-sectoral working group to address the issue. This committee recommended several legislative changes, including amending the Constitution of Kenya (Amendment) Bill, specifically Article 97(1) of the 2010 Kenyan Constitution, by adding a provision on the nomination of special seats members to ensure compliance with the two-thirds gender principle. For the Senate, a similar addition to Article 98(1) was proposed, drawing on existing provisions for county assemblies.
Additionally, the Elections (Amendment) Bill proposes requiring political parties to submit to the Independent Electoral and Boundaries Commission a list of candidates for parliamentary and county elections that complies with the gender principle. The National Assembly's Justice and Legal Affairs Committee tabled this report during a special sitting on January 16, 2025, where it awaits debate—a prerequisite for adoption and implementation of the recommendations.
Perhaps most symbolically troubling for women's rights advocates is his failure to appoint a dedicated Gender CS six months after reconstituting his cabinet and conducting a mini-reshuffle. This vacancy in leadership for the ministry most directly responsible for advancing women's rights has become a major grievance among Kenyan women, who see it as indicative of the administration's true priorities regarding gender equality.
This feature is part of our special coverage for International Women's Day, celebrated globally on March 8, to honour women's achievements and continue the push for gender equality.