In the ever-evolving landscape of educational policy, few interventions have sparked as much debate in Ghana as the Free Senior High School (Free SHS) policy and its innovative twin, the Double-Track School System.
While the current Minister for Education, my good friend the Honourable Haruna Iddrisu, has recently asserted that the double-track system “has negatively impacted education,” a close look at the data and a deeper understanding of the system’s design tell a compellingly different story. Far from being a detriment, the double-track system was a masterstroke of policy, an essential solution that not only maximised access but also served as a catalyst for a remarkable improvement in learning outcomes across the nation.
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The story begins in 2017 with the bold implementation of the Free SHS policy by the government under President Nana Addo Dankwa Akufo-Addo. This policy, designed to eliminate financial barriers to secondary education, was an immediate success, leading to an unprecedented surge in student enrollment. The numbers speak for themselves: in June 2018, the nation saw an 11.5% increase in BECE registration, a drastic jump from the usual 1.5% to 2% annual growth. This surge, while a testament to the policy’s success in broadening access, created a significant challenge. With the existing infrastructure, it was estimated that some 181,992 students who passed their exams would have no space to continue their education. The nation was at a crossroads. How could it provide an education for all without compromising quality?
The answer, conceived and executed under the leadership of the then Minister for Education, Dr. Matthew Opoku Prempeh, was the Double-Track School System. This innovative intervention, introduced in September 2018, was a pragmatic and cost-effective solution to a monumental infrastructure gap. It was designed to maximise existing facilities, allowing schools to accommodate more students by running two sessions for first years at the time, one for the “Green Track” and one for the “Gold Track”, rather than embarking on immediate, massive construction projects that would take years to complete.
Debunking the Myths with Hard Data: A Look at the WASSCE Results
The most potent argument against the double-track system has always been the fear that reduced classroom time would lead to a decline in quality. This fear, however, crumbles in the face of objective evidence from the West African Examinations Council (WAEC). An analysis of WASSCE results from 2015 to 2024 reveals a stunning truth: the period under the Free SHS and double-track system (2020-2024) represents the best performance in Ghana’s WASSCE history.
The evidence is overwhelming. Except for a few minor fluctuations, the pass rates for all four core subjects consistently remained above 50% from 2020 onwards, a feat rarely achieved in the years prior. This period saw a significant jump in performance, particularly in subjects like Mathematics, which saw pass rates soar from the 30s to consistently over 60%.
These numbers are not just statistics; they are a direct contradiction to the assertion that quality has been negatively impacted. In fact, they demonstrate a remarkable improvement in learning outcomes, even as the student population swelled. The nation’s educational progress is further highlighted by the fact that Ghanaian students have consistently topped the WAEC Excellence Awards in all of West Africa over the past five years, an achievement that would be impossible if the quality of education had declined.
More Than Just Two Tracks
The success of the double-track system was no accident. It was the result of a carefully planned strategy to ensure that quality was not compromised for the sake of access. When the Akufo-Addo government introduced the system, several key measures were put in place:
- Increased Contact Hours: The school calendar was restructured from a three-term system to a semester system. This change was not about cutting time; it was about optimising it. The contact hours per academic year were increased from 1,080 to 1,134, adding a total of 162 hours over the three years. This directly refutes any claim of “reduced time.”
- Investment in Human Capital: To manage the increased student numbers, the government created 8,872 new teaching jobs and about 2,000 non-teaching jobs, ensuring that schools were adequately staffed to support the new system.
- Targeted Academic Support: The government introduced an Academic Intervention Grant, providing all SHS students with free extra tuition and remedial support. This program, along with specialised training for Core Subject, Maths, and Science teachers, directly contributed to the improved learning outcomes seen in the WASSCE results.
A Digital Leap: The Future of Ghanaian Education
The double-track system was always a temporary solution, a bridge to a new era of expanded infrastructure. It was promised in 2018 that the system would be phased out within 5-7 years, and significant progress was made.
By the end of Dr. Matthew Opoku Prempeh’s tenure as education minister in 2021, about 800 of the 1,132 proposed high school infrastructure projects were completed, paving the way for a smooth return to a single-track system. The unfortunate arrival of the COVID-19 pandemic necessitated a transitional calendar, but today, sufficient infrastructure exists to ensure a seamless return.
Beyond the physical infrastructure, the government’s vision for education extended into the digital realm, laying the groundwork for a truly modern and resilient system. While the debate over double-track raged, a silent digital revolution was taking place, ensuring that even if physical access was a temporary issue, learning would not stop. These forward-looking investments include:
- The Ghana Library App: Providing students with access to a vast repository of digital resources, breaking down the barriers of physical libraries.
- CENDLOS (Centre for National Distance Learning and Open Schooling): A dedicated institution focused on integrating technology into education, ensuring a future-proof model of learning.
- One Teacher One Laptop & One Student One Tablet: These initiatives are equipping both educators and learners with the fundamental tools of the 21st century, bridging the digital divide and fostering a culture of technology-assisted learning.
- Improved ICT Labs, the iCampus portal, Ghana Learning TV, and Ghana Learning Radio: A multi-pronged approach that provides access to digital content through various mediums, from dedicated ICT labs in schools to television and radio for students in remote areas.
The success of the double-track system is not just about the numbers; it’s about the people. It’s about the over 1.2 million students who, without this policy, would have been denied the opportunity to continue their education.
The system was a bold and necessary intervention, a testament to the government’s commitment to access and quality. While some may continue to mischaracterise its impact, the data and the broader investments in digital learning paint a clear picture of a nation that is not just providing education but actively improving it. The legacy of the double-track system is not one of negative impact but one of unprecedented access and undeniable educational excellence.
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About the Author: Dr. Kwabena Bempah Tandoh is the Founder & CEO of the Orpington Group, www.orpingtongroup.com, an educational consulting firm focused on education investment, research and advisory in Ghana and Africa. He is the former Deputy Director-General of the Ghana Education Service, serving from 2018 to 2025.
Email: [email protected]
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