History and Evolution of The National Treasury
The origins of the National Treasury date back to pre-independence Kenya. The Oliver Lyttleton Constitution of 1954 established the Ministry of Finance and Development, marking the start of a structured financial administration in the country. Since then, the Ministry has experienced various changes, though its core functions have stayed consistent. Notably, the Treasury and the State Department of Economic Planning—now combined within the Ministry—have historically operated either together under one institution or separately, depending on the administrative framework in place.
The Constitution of Kenya, 2010, provided a solid constitutional foundation for the National Treasury. Article 225 explicitly envisioned the creation of the National Treasury through legislation. This vision was realized with the enactment of the Public Finance Management Act, 2012. Part III of the Act formally established the National Treasury and clearly defined its mandate and functions.
In addition, the Constitution vested the responsibility for economic policy and national planning in the National Treasury. Pursuant to this, Executive Order No. 1 of 2023—later superseded by Executive Order No. 1 of 2025—consolidated these functions under a single institution, the National Treasury, situating both the National Treasury and the State Department for Economic Planning within one institutional framework.
History and Evolution of The National Treasury
The origins of the National Treasury date back to pre-independence Kenya. The Oliver Lyttleton Constitution of 1954 established the Ministry of Finance and Development, marking the start of a structured financial administration in the country. Since then, the Ministry has experienced various changes, though its core functions have stayed consistent. Notably, the Treasury and the State Department of Economic Planning—now combined within the Ministry—have historically operated either together under one institution or separately, depending on the administrative framework in place.
The Constitution of Kenya, 2010, provided a solid constitutional foundation for the National Treasury. Article 225 explicitly envisioned the creation of the National Treasury through legislation. This vision was realized with the enactment of the Public Finance Management Act, 2012. Part III of the Act formally established the National Treasury and clearly defined its mandate and functions.
In addition, the Constitution vested the responsibility for economic policy and national planning in the National Treasury. Pursuant to this, Executive Order No. 1 of 2023—later superseded by Executive Order No. 1 of 2025—consolidated these functions under a single institution, the National Treasury, situating both the National Treasury and the State Department for Economic Planning within one institutional framework.
More recently, Executive Order No. 1 of 2025 further clarified and reinforced its current organizational structure.
Hon. James Gichuru, EGH: James Samuel Gichuru (1914–1982) was a prominent Kenyan politician and nationalist leader during the country’s struggle for independence. Born in 1914 in Thogoto, Kiambu County, he became a central figure in shaping Kenya’s political and economic landscape.
Gichuru was a founding member of the Kenya African National Union (KANU), the party that spearheaded Kenya’s independence. In 1960, he assumed the role of Acting Chairman of KANU while Jomo Kenyatta remained imprisoned by the colonial administration. Following independence in 1963, Gichuru was appointed Kenya’s first Minister of Finance, a position he held through much of the 1960s.
In this capacity, he laid the groundwork for the nation’s economic policy, addressing critical challenges such as reducing dependence on British financial support. He later served as Minister of Defense in the 1970s.
As a Member of Parliament, Gichuru represented Limuru Constituency in Kiambu. His leadership was instrumental in guiding Kenya through the transition to independence and in establishing the early structures of party politics and governance.
Hon. Mwai Kibaki: Emilio Stanley Mwai Kibaki was born on 15th November 1931 in Gatuyaini village, Othaya division, Nyeri District.
He was elected as the Member of Parliament for the Doonholm Constituency (later called Bahati and now known as Makadara) in Nairobi.
In 1963, Kibaki was appointed the Permanent Secretary for the Treasury. That same year, he was appointed Assistant Minister of Finance and Chairman of the Economic Planning Commission. He was later promoted to Minister of Commerce and Industry in 1966. In 1969, he became Minister of Finance and Economic Planning, a position he held until 1982.
Hon. Arthur Magugu: Arthur Kinyanjui Magugu, born in 1934, was a KANU MP representing Githunguri from 1969 to 1988. He served as Kenya’s Finance Minister between 1982 and 1988.
He gained the dubious distinction of being the first Finance Minister to delay the reading of the Budget speech—delivering it in July instead of June.
Prof. George Saitoti: He was born on 3rd August 1945 in Ngong, Kajiado, Kenya. In October 1983, Prof. George Saitoti was nominated to the Kenyan Parliament, and President Daniel Toroitich arap Moi appointed him as Finance Minister.
He presided over a Treasury that struggled with inflation. This was also the period when the Goldenberg scandal cost Kenya billions of shillings.
Hon. Musalia Mudavadi: Wycliffe Musalia Mudavadi was born on 21st September 1960. After the death of his father, Moses Mudavadi, in 1989, Musalia Mudavadi joined politics, contesting and winning the by-election in Sabatia Constituency—a position he held until 2013.
Mudavadi served as Minister for Supplies and Marketing (1989–1993) and Minister of Finance (1993–1997).
Simeon Nyachae: Simon Nyachae was born on 6th February 1932. His career in the civil service began at this point. In 1957, he served in the provincial administration, rising through the ranks to become a Provincial Commissioner. Nyachae later served as the Chief Secretary in the civil service under the governments of Jomo Kenyatta and Daniel Arap Moi.
He won a parliamentary seat in 1992. His election in Nyaribari Chache Constituency was instrumental in his entry into the Moi government as a Cabinet Minister, first for Agriculture and later for Finance.
Francis Masakhalia: Francis Omoto Masakhalia was a Kenyan politician and the first Member of Parliament for the Butula Constituency. He served as Minister for Finance for a period of six (6) months.
Chris Okemo: Chrysanthus Barnabas Okemo was born on 17th July 1947 and served as the Member of Parliament for Nambale Constituency from 1997 to 2007.
He became popular for his initiative of removing tax on bicycles, also known as boda boda, which were commonly used for the taxi business.
Hon. Chris Obure, EGH: Christopher Mogere Obure was born on 29th September, 1943.
He read the last budget under President Moi’s regime. He was the Minister of Public Works in the Government of National Unity. He was the first Senator of Kisii County.
Hon. David Mwiraria, EGH: Born on 3rd September 1938, he served as Permanent Secretary in various government ministries from 1977 to 1986. He then joined politics and was elected as the Member of Parliament for North Imenti for three terms. Mwiraria also served as Minister of Finance under the National Rainbow Coalition from 2002 to 2006.
Hon. Amos Kimunya, EGH: Amos Muhinga Kimunya was born on March 6, 1962.
On February 14, 2006, he was appointed as Minister of Finance by President Mwai Kibaki following the resignation of David Mwiraria. Kimunya served as Member of Parliament for Kipipiri Constituency.
Hon. John Njoroge Michuki, EGH: was a significant Kenyan politician and nationalist leader, especially around the time of Kenya’s independence.
Born in 1914 in Thogoto, Kiambu County, Kenya. and passed on in 1982 was a member of the Kenya African National Union (KANU), Political Party: the party that led Kenya to independence.
He was among the founders of KANU in 1960 and served as its Acting Chairman from 1960 to 1961 while Jomo Kenyatta was imprisoned by colonial authorities.
He was the Minister of Finance in Kenya’s first Minister of Finance after independence in 1963 and served in that role through much of the 1960s. he also : He later served as Minister of Defense in the 1970s. he was a member of Parliament and represented Limuru Constituency in Kiambu.
Hon. Uhuru Kenyatta, EGH: Uhuru Muigai Kenyatta was born on 26th October 1961. He is the son of Jomo Kenyatta, Kenya's first president.
President Moi picked Kenyatta as his preferred successor. However, he was defeated by the then opposition leader Mwai Kibaki in the 2002 election. Kenyatta served as the Member of Parliament (MP) for Gatundu South from 2002 to 2013. He also served as Deputy Prime Minister and Minister of Finance from 2008 to 2013.
After reading only one budget under the old Constitution, he was the last Finance Minister before the new Constitution came fully into force.
Hon. Robinson Njeru Githae, EGH: He has served as the Member of Parliament for Ndia Constituency and as an assistant minister in the ministries of Justice, Transport, and Local Government before being appointed as the Minister of Finance to succeed Hon. Uhuru Kenyatta.
Hon. Henry K. Rotich, EGH: Henry K. Rotich was born in 1969. He is a Kenyan civil servant who was nominated by President Uhuru Kenyatta as Cabinet Secretary for the National Treasury on 23 April 2013.
Hon. Amb. Ukur Yatani Kanacho, EGH: Ukur Yatani was born in 1967 in Forole, North Horr sub-county, he served as a District Officer and rose through the ranks from District Officer Cadet to a Senior District Officer and then promoted to a District Commissioner in July 2002.
He was elected as the Member of Parliament for North Horr constituency in 2006. On 24 July 2019, President Uhuru Kenyatta appointed Yatani as the Cabinet Secretary for Treasury on an acting capacity following the sacking of Henry Rotich. He was confirmed as the Cabinet Secretary on 24 January 2020.
Prof. Njuguna Ndung'u, EGH: Ndung'u was born in Kandara, Murang'a County, Kenya, in 1960. Before his appointment as Governor of the Central Bank of Kenya, he was the Director of Training at the African Economic Research Consortium (AERC).
Ndung'u previously served as the eighth Governor of the Central Bank of Kenya for two consecutive four-year terms, from March 2007 until March 2015. In 2018, he re-joined the AERC as Executive Director.
He was appointed Cabinet Secretary for the National Treasury and Economic Planning from October 2022 to July 2024.
Following independence in 1963, Gichuru was appointed as Kenya's first Minister of Finance, a position he held for much of the 1960s. In this role, he laid the foundation for the nation's economic policy, tackling pressing challenges such as reducing reliance on British financial support. He was among the pioneering technocrats behind the drafting and implementation of Sessional Paper No. 10 of 1965, a landmark policy document that charted Kenya's path toward sustained economic growth and development.
In the 1970s, Gichuru transitioned to serve as Minister of Defense, further cementing his influence in government. His leadership was instrumental in steering Kenya through the delicate transition to independence and in establishing the early frameworks of party politics and governance.
As Finance Minister, Kibaki was instrumental in stabilizing Kenya's post-independence economy, guiding the transition from colonial financial structures to nationally managed systems. Under his stewardship, Kenya recorded impressive GDP growth rates of 6–7% throughout the 1960s and 1970s, driven by agriculture, manufacturing, and tourism. He is also credited, alongside Tom Mboya, with the drafting and implementation of Sessional Paper No. 10 of 1965, The Sessional Paper No. 10 of 1965 stood as a landmark policy, serving as the blueprint for Kenya's economic growth and long-term development. As Finance Minister, Mwai Kibaki emphasized fiscal discipline, prudent public expenditure, and monetary stability—measures that ensured the Kenyan shilling remained relatively stable. He also championed Africanization, expanding African participation in commerce, banking, and public service, while encouraging the growth of local entrepreneurship.
Yet, his tenure was marked by significant challenges. Economic progress was uneven, with rural poverty and regional disparities persisting. Kenya's dependence on agriculture left the economy exposed to droughts and fluctuations in global commodity prices. The oil shocks of 1973 and 1979 further strained the system, driving inflation, increasing import costs, and creating balance of payments pressures. Despite these obstacles, Kibaki's stewardship established enduring foundations for Kenya's economic policy. His vision positioned the nation as one of Africa's strongest economies in the post-independence era, laying the groundwork for resilience and future development.
Arthur K. Magugu was a key figure in Kenya's financial governance during the 1980s, steering the country's economy through a turbulent global environment and leaving a legacy of resilience in fiscal management
Minister of Finance from 1988 to 1993, a period marked by both economic reform and political turbulence. His tenure is remembered for introducing structural adjustment programs, stabilizing fiscal policy, and navigating Kenya through a difficult global economic environment. Economic Reforms & Structural Adjustment: Saitoti oversaw the implementation of IMF and World Bank–backed structural adjustment programs. These reforms aimed to liberalize trade, reduce government spending, and privatize state-owned enterprises.
Corruption and Governance Issues: His tenure coincided with growing concerns about corruption in government, which undermined confidence in fiscal reforms. His tenure was marked by high inflation and the Goldenberg scandal, which cost Kenya billions of shillings.
Legacy; Technocratic Leadership: Saitoti, a mathematician by training, brought intellectual rigor to economic management. His analytical approach distinguished him from many contemporaries who relied more on political patronage.
As Finance Minister, Mudavadi prioritized fiscal discipline and inflation control, supporting structural adjustment programs aimed at reducing budget deficits and stabilizing the Kenyan shilling. He also introduced tax reforms to widen the revenue base and promoted budget rationalization and expenditure controls. While these measures were technically sound, they carried high social costs, including reduced spending on health, education, and social services. His efforts to engage international financial institutions sought to restore donor confidence, but governance concerns and political interference limited the effectiveness of these negotiations.
Mudavadi’s tenure was further challenged by systemic corruption and governance failures, most notably the Goldenberg scandal, which severely undermined fiscal credibility. Structural adjustment programs also led to job losses, subsidy cuts, and declining living standards, fueling public perception that Treasury policies favored external lenders over citizens.
Despite these constraints, Mudavadi was widely regarded as a competent technocrat. His calm, consultative, and policy‑oriented leadership earned respect among professionals and development partners. Overall, his tenure can be described as technically credible but structurally constrained—marked by sound macroeconomic management overshadowed by corruption, governance failures, and uneven social outcomes that defined Kenya’s economic trajectory in the 1990s.
As Finance Minister, Nyachae emphasized fiscal discipline, tighter expenditure controls, and improved revenue collection. His 1998/99 Budget Speech underscored the need for rationalized spending and accountability in public finance.
Finance and Infrastructure Legacy
As Minister of Public Works and Finance, Obure played a pivotal role in shaping Kenya's economic and infrastructural landscape. His leadership contributed to the expansion of critical infrastructure and strengthened financial oversight, leaving a lasting imprint on the country's development trajectory.