20-002512SP Richard Corcoran, As Commissioner Of Education vs. Lion Of Judah Academy (4015), Lion Of Judah Academy (8827)
 Status: Closed
Recommended Order on Tuesday, November 3, 2020.


View Dockets  
Summary: Respondents employed a person who failed Level 2 background check and engaged in fraud as related to employee's screening and employment status; Respondents? eligibility to participate in Florida Scholarship Programs should be revoked.

1background screening as required by section 1002.421(1)(m) and (p), Florida

11Statutes (201 9) , and i f so, what is the appropriate remedy ; and (2) w hether

27Respondent s engaged in fraud in violation of section 1002.421(3)(d) and, if so,

40whether Petitioner should revoke Respondents' participation in several

48Florida S cholarship P rograms. 1

54P RELIMINARY S TATEMENT

58On February 20, 2020, Petitioner Richard Corco ran, as Commissioner of

69Education (the Commissioner or Petitioner ), issued Administrative

77Complaints (Complaints) against Responden ts Lion of Judah Academy (4015)

87and Lion of Judah Academy Campus 2 (8827) (collectiv ely referred to as the

101Schools or Respondents ), giving notice of the Commissioner 's intent to

113immediately suspend and revoke Respondents' participation in the J ohn M.

124McKay Scholarships for Students with Disabilities Program, the Florida Tax

134Credit Scholarship Program, the Gardiner Scholarship Program, the Hope

143Scholarship Program, and the Family Empowerment Scholarship Program

151(collectively referred to as the Florida Scholarship Programs). 2

160The factual grounds for the intended decision to revoke scholarship

170participation were set forth in both Complaints , as follows:

179Disqualifying Offense: Lion Of Judah Academy

185employs one Lorene Walker who has previously

192been convicted of a felony violation of section 893.13, Florida Statutes. Per sections 1002.421(1)

206and 435.04(2), Florida Statutes, private school

212employees, owners or directors who have b een

220found guilty of a felony violation of Chapter 893,

229Florida Statutes, do not meet the requisite criteria

2371 Unless otherwise indicated, citations to the Florida laws and administrative rules refer to

251the 2019 versions.

2542 Lion of Judah Academy Campus 2 (8827) did not participate in the Gardiner or Hope

270Scholarship Programs.

272to pass the Level 2 background screening required

280by sections 1002.421(l)(m) and (p), Florida Statutes.

287Fraud: Lion Of Judah Academy has knowingly and

295willingly concealed its employment relationship with Lorene Walker in an effort to circumvent the requirements of law and continue the unlawful

316receipt of scholarship funds. Accordingly, Lion of

323Judah Academy has committed fraud as contemplated by sect ion 1002.421(3)(d), Florida

335Statutes.

336The C omplaints further informed Respondents that the Commissioner

345may also take action if the owner "is operating or has operated an

358educational institution in a manner contrary to the health, safety, or welfare

370of st udents or the public, or if there is probable cause to believe that there is

387fraudulent activity on the part of the school."

395On March 4, 2020, Respondents' owner, Judith Shealey, filed a petition to

407r einstate Ms. Walker's E mployment with the Schools (Petition) . Not h ing in

422that Petition indicates Ms. Walker was still employed at the Schools.

433On March 11, 2020, in response to the Complaints, the Schools submitted

445for th e first time a signed copy of a termination letter dated December 9,

46020 19 . As part of this same submission, Ms. Shealey sent a signed statement

475indicating she had not terminated Ms. Walker, but rat her "had her work from

489home." This is the first time Ms. Shealey indicated Ms. Walker was still

502working for the Schools.

506The Depart ment of Education (Department) eventually dismissed the

515Petition with leave to amend. On April 10, 2020, the Schools filed a Motion to

530Amend and Reverse Your Decision (Motion) with the Departme nt.

540Subsequently, t he School s filed an Amended Petition for Ad ministrative

552Hearing on May 15, 2020, which the Department received on May 18, 2020 .

566On June 1, 2020, the Department transferred the matter to DOAH, as two

579separate cases for each Complaint . The undersigned held a scheduling

590conference on June 4, 2020, during which the parties discussed the time restraints imposed by section 1002.421(3)(c)2.c., requiring that in a scholarship program eligibility case, the hearing be conducted within 30 days

622af ter DOAH's receipt of the formal written request. Neither party wished to

635waive the 30 - day requirement during the scheduling conference . Therefore

647the matters were consolidated and a final hearing was scheduled to be conducted by Zoom on June 23 , 2020.

666O n June 17, 2020, Respondents' counsel filed a Notice of Appearance and

679orally requested a continuance during a pre - hearing conference. The

690Commissioner did not object and the parties waived the 30 - day requirement

703to hold the final hearing.

708At the final h earing on August 12, 2020, the parties offered Joint Exhibits

722J1 through J8, whic h were received into evidence. Petitioner called three

734witnesses to testify: RaShawn Williams, Whitney Blake, and Scott Earl e y.

746Petitioner's Exhibits P1 through P21 were recei ved in evidence as well.

758Respondents presented the testimony of three witnesses: Lorene Walker,

767Susan Layne, and Lamar Shealey. Respondents offered no exhibits.

776The final hearing T ranscript was received by the undersigned on

787October 8, 2020, and an O rder imposing a deadline to file proposed

800recommended orders o n October 19, 2020, was issued on that same date . The

815Commissioner timely filed a P roposed R ecommended O rder , which has been

828considered. Respondents ' Proposed R ecommended O rder was late - filed on

841Octo ber 20, 2020. As there was no objection to the untimeliness, Respondents'

854P roposed R ecommended O rder has also been considered. Prior to the hearing ,

868the parties submitted an Amended Pre - Hearing Stipulation with several

879stipulated facts and issues of law, w hich have been incorporated in this

892Recommended Order.

894F INDINGS OF F ACT

899Parties, People, and Programs

9031. The Department is the government agency charged with administering

913numerous state scholarship programs pursuant to section 1002.421, Florida

922Statutes.

9232. The Department operates or has administrative responsibilities for the

933Gardiner Scholarship Program, the J ohn M. McKay Scholarships for

943Students with Disabilities Program, the Florida Tax Credit (FTC)

952Scholarship Program, and the Family Empowerment Scholarship Program.

960See §§ 1002.385, 1002.39, 1002.394, and 1002.395, Fla. Stat. The Gardiner,

971McKay, FTC, and Family Empowerment scholarships defray tuition and

980other qualified educational expenses for eligible students who attend charter, private , or other eligible schools in the state of Florida. The Department also

1003operates or administers the Hope Scholars hip Program, which provides

1013tuition assistance to victim s of school bullying so that they can enroll in

1027another school. See § 1002.40, Fla. Stat. The scholarship funds are awarded

1039to eligible students to be used at eligible schools.

10483. The Commissioner is the agency head of the Department and has the

1061authority to revoke or suspend a school's eligibility to receive scholarship

1072monies on behalf of eligible students.

10784. The Independent Education and Parental Choice Office, also referred to

1089as the School Choic e Office (Office), is a section of the Department which

1103oversees several school choice options outside Florida's public school system.

1113The Office also oversees the administration of various scholarships programs

1123under c hapter 1002. The Office is in regular contact with schools that

1136participate in these scholarship programs.

11415. Respondents have been operating as private schools for approximately

1151six year s . Since the 2013/2014 school year, they have been found eligible and

1166participated in numerous scholarship progra ms pursuant to section 1002.421.

1176Respondents operate two campuses: (1) School Code No. 4015 located at 1056

1188N orth Pine Hills Road, Orlando, Florida (Pine Hills C ampus); and (2) School

1202Code No. 8827 located at 5308 Silver Star Road, Orlando, Florida (Silver Star

1215Campus).

12166 . T he Schools serve 40 to 50 scholarship students and receive

1229approximately $200,000 per year in scholarship funds.

12377. Judith Shealey is the owner of the Schools. She carries the title of

1251Executive Director, Principal, Headmistr ess, and/or Owner. Ms. Shealey has

1261family members who are students and teachers at the Schools.

1271Compliance Requirements

12738 . As explained by RaShawn Williams, the Office, parents , and eligible

1285schools work closely together to access the scholarship funds. The parents

1296apply for the scholarships thro ugh the designated agency and enroll their

1308students directly with an eligible school. The school is responsible for enrolling the student in the scholarship program awarded to that student. Essentially, the studen t must be deemed eligible to receive scholarship funds,

1342and the school must be eligible to re ceive those scholarship funds. I f a private

1358school is deemed ineligible by the Office for participation in a scholarship

1370program, the students at that school do no t lose their elig ibility for

1384scholarship funds. Rather, they simply cannot use those funds to enroll in the ineligible school.

13999. As p rivate school participants in the Florida Scholarship Programs, the

1411Schools were required to register with the State thro ugh the submission of a

1425Private School Annual Survey; and then apply for eligibility through the submission of a yearly Scholarship Compliance Form (Compliance Form).

144510. The Compliance Form specifies numerous governing statutory

1453requirements including : ( 1) submitting background screenings for officers,

1463directors , or other controlling persons ; (2) certifying all staff with direct

1474student contact have passed an FD LE Level 2 background screening; and

1486(3) terminating or denying employment to all persons who cannot meet this

1498requirement. The Compliance Form is completed by applicant schools online,

1508and then a signed and notarized hard copy is mailed to the Office.

152111. The relevant portions of the Compliance Form are found in "Section 4 , "

1534and involve background checks:

1538A) * Has each Owner, Operator, and Chief

1546Administrative Officer undergone a Level 2

1552background screening through the Florida

1557Department of Law Enforcement and submitted

1563the results to the Florida Department of Education

1571in accordance with section 1002.421(1)(m) , Florida

1577Statutes? (Reports must be filed with the

1584private school and made available for public

1591inspection).

1592* * *

1595C) * Have all employees and contracted personnel

1603with direct student contact submitted their fingerprints to the Florida De partment of Law

1617Enforcement for state and national background screening in accordance with section

162810 02.421(1) (m), Florida Statutes?

1633D) * In accordance with section 1002.421(1)(m), Florida Statutes, does the school deny employment to or terminate an emplo yee or contracted

1655personnel with direct student contact if he or she

1664fails to meet the background screening standards under section 435.04, Florida Statutes?

1676E) * In accordance with section 1002.421(1)(m),

1683Florida Statutes, does the school disqualify inst ructional personnel and school administrators

1695from employment in any position that allows direct contact with students if the personnel or

1710administrators are ineligible under section 435.40,

1716Florida Statutes?

171812. A "No" answer on any of the above q uestions would, if unresolved,

1732result in a private school's ineligibility for scholarship funds.

174113 . The evidence establishes that the Schools answered "Yes" for sections

17534A, 4C, 4D, and 4E on the notarized Compliance Forms that were submitted

1766on December 18, 2018 , and December 11, 2019.

177414 . In addition to certifying the information above on the Compliance

1786Forms every year, an eligible school must submit to the O ffice screening

1799documentation for directors, principals, board members, administrators, and

1807o fficers as part of the renewal of participation in the scholarship programs.

1820Screening documentation related to other employees must be maintained by

1830the schools and is usually only reviewed by the Office during an audit or a

1845site visit of the school.

185015 . There is no dispute that the Schools never listed Lorene Walker as an

1865administrator for the Schools. There is no dispute the Schools never submitted any background screening information for Ms. Walker until specifically requested by the Office in Novembe r 2019.

1894Employment of Lorene Walker

189816 . Lorene Walker was hired by the Schools in 2013. 3 She had children

1913and/o r grandchildren who attend the S chools. The Schools claim Ms. Walker

1926was hired from an entity known as "Career Source." Although Ms. Walker beli eved that she had been cleared to work at the Schools, there is no

1953employment file or documentation that she had undergone the Level 2

1964background screening required by law before being employed at the Schools.

197517. Originally, Ms. Walker worked as a "floater." As a floater , Ms. Walker

1988cooked, cleaned , and did whatever the school needed at the time. It is unclear

2002whether she had direct contact with students in this position.

20123 Ms. Walker testified she began work ing there in 2015, but later stated she started in 2013.

2030Ms. Shealey indicate d by 2014, Ms. Walker had transitioned into the current position.

204418. Regardless, in 2014 , Ms. Walker transitioned into a m o re active role at

2059the Schools. Although the Schools claim in response to the Complaints that

2071she was simply an administrative assistant to Ms. Shealey, the evidence

2082establishes that Ms. Walker was the Administrator for the Schools during the

2094time relevant to the Complaints. She reminded teachers to send out grades,

2106attended meetings, oversaw the lunch program, and prepared school - related

2117and financial documentation . Ms. Walker was also responsible for the

2128Schools' students' enrollment into the scholarship programs.

213519. As Administrator, Ms. Walker also had authority, either explicit or

2146implicit, from the Schools' owner, Ms. Shealey, to represent the Schools when

2158dealing with the Office . She worked directly with Ms. Williams on compliance

2171issues, including fire safety, health inspections , and completion of the Annual

2182Survey and Co mpliance Form for the Schools. Ms. Walker also responded to

2195requests for information from Ms. Williams and others in the Department. It

2207was clear Ms. Walker was integral to the ope ration of the Schools.

222020. Ms. Shealey and Ms. Walker were the only two individuals with access

2233to the Schools' email accounts that were used to correspond with the

2245Department. The emails from one of the email addresses usually contained

2256Ms. Shealey's sig nature block indicating either the title of "Principal" or

"2268Headmistress." Ms. W alker's signature line identified her title as

"2278Administrator."

227921. Before being hir ed by the Schools , Ms. Walker had been arrested for

2293numerous offenses between 1978 and 2001 in Florida. Although most of these

2305offenses were dismissed, dropped, and/or abandoned, she pled nolo contend e re to and was found guilty of a 1994 charge for unlawful purchase of

2330a controlled substance, a second - degree felony in violation of section 8 93.13,

2344Florida Statutes (1993) .

234822. The 1994 charge is a disqualifying offense which rendered Ms. Walker

2360ineligible to be a school employee. 4 There was no evidence that Ms. Walker

2374had obtained an exemption for this qualification.

238123 . As noted above, t he Schools never disclosed Ms. Walker's importance

2394in their operations in their Compliance Forms . Prior to November 2019, the

2407Schools had never provided any screening documentation for Ms. Walker to

2418th e Office as part of the yearly c ompliance process .

2430Investigation and Complaints

243324. On or around October 14, 2019, the D epartment received a complaint

2446from another state agency concerning possible abuse by an employee of the Sc hool at the Pine Hills campus. Although the abuse investigation was

2470handled outs ide of the Office, the Office opened an inquiry into the Schools '

2485compliance with background check requirements and other issues. Whitney Blake conducted the investigation on behalf of the Office.

250325. The first step in this inquiry was a letter from Ms. B lake's supervisor,

2518dated October 25, 2019, requesting ( among other things ) a list of all

2532employees ( including both teachers and other personnel) and results of

2543current FDLE Level 2 background screenings for all employees.

25524 Section 435.04, Florida Statutes, provides the following in relevant part:

2563(2) The security background investi gations under this section

2572must ensure that no persons subject to the provisions of this

2583section have been arrested for and are awaiting final

2592disposition of, have been found guilty of, regardless of adjudication, or entered a plea of nolo contendere or gu ilty to,

2613or have been adjudicated delinquent and the record has not been sealed or expunged for, any offense prohibited under any

2633of the following provisions of state law or similar law of

2644another jurisdiction:

2646* * *

2649(ss) Chapter 893, relating to drug ab use prevention and

2659control, only if the offense was a felony or if any other person

2672involved in the offense was a minor.

267926 . On November 4, 2020, Ms. Walke r sent the Department a list of all the

2696Schools' staff, including herself as "Administrator," along with the results of

2707her background screeni ng , revealing her previous disqualifying offense .

271727. On November 15, 2019, Ms. Blake attempted to contact Ms. S healey

2730by phone because she was concerned that Ms. Walker, who was the

2742disqualified employee, was the person sending the information from the

2752School. When she called the School s and requested to speak with the owner

2766(Ms. Shealey), the person who answered p urportedly claiming to be the

2778Schools' owner did not have a distinguishable accent. Ms. Shealey was known

2790to have a strong accent , whereas Ms. Walker did not . Regardless, on this call ,

2805Ms. Blake instructed the person on the other end of the phone line that the

2820Schools would need to terminate Ms. Walker immediately because of her

2831disqualifyi ng offense .

283528. On that same day, Ms. Blake then sent a follow - up em ail to the

2852Schools (at both email addresses utilized by the Schools) indicating there

2863were o utstanding items that had not been provided as requested in the

2876October 25 letter . She also specifically requested proof Ms. Walker was no

2889longer at the Schools . Specifically, the Department stated:

2898Upon review of the Level 2 background screenings,

2906it was determined Lorene Walker has disqualifying offenses pu rsuant to section 435.04, F.S. An

2921employee or contracted personnel with direct

2927student contact means any employee or contracted

2934personnel who has unsupervised access to a scholarship student for who m th e private school is

2951responsible.

2952To certify compliance with this requirement, please submit a signed statement indicating Lorene Walker's employment at your school has been terminated or that individual's role with your

2979school no longer puts he/she in proximity to

2987scholarship students.

2989Your attention to this in the next five days will

2999preempt any further action on our part. (emphasis added ).

300929. That same date, November 15, 2019, the Schools emailed one of the

3022items requested by Ms. Blake, an a buse poster, to the Office . Although

3036M s. Walker testified she did not send the email, it had her signature block

3051and was from one of the Schools' two email acc ounts to which she had access.

3067The undersigned finds Ms. Walker sent this email to Ms. Blake.

307830. On November 18, 2019, the Schools sent another item previously

3089requested by Ms. Blake, the teaching qualifications for a teacher , to the

3101Office . Again, although Ms. Walker claimed she did not send the email, it had

3116her signature block and was from one of the Schools' two email acc ounts to

3131which she had access. The undersigned finds Ms. Walker sent this email to

3144Ms. Blake.

314631. Ms. Blake did not receive any proof that the Schools had removed

3159Ms. Wal ker from her position within five days as requested in th e

3173November 15 email to the Schools. As a result, on November 22, 2019,

3186Ms. Blake emailed the S chools reiterating the requirements of sec tion

31981002.421, and repeating her request for a signed statement that Ms. Walker

3210had been terminated or had no contact with scholarship students. Ms. Blake

3222also added: "Failure to turn in the requested documentation could impact

3233your school's ongoing participation in the Scholarship Program."

324132. During this time , Ms. Blake spoke to Ms. Shealey numerous times on

3254the phone regarding the outstanding requests related to another teacher and the signed documentation that Ms. Walker had been removed from her

3276position. Ms. Shealey indicated it would be difficult to remove Ms. Walker

3288due to Ms. Walker's oversight of the school and her familiarity with the

3301scholarship student information.

330433. After Ms. Blake did not receive the requested proof of Ms. Walker's

3317removal from the Schools and two other items related to a teacher, the Office

3331issued a Notice of Noncompliance on December 5, 2019.

334034. On December 19, 2019, Ms. Shealey sent to Ms. Blake one of the

3354outstanding items related to the teacher by email. There was no mention of

3367Ms. Walker and no signed proof that Ms. Walker had been removed from her

3381position.

338235. The next day, Ms. Blake wrote an email to Ms. Shealey indicating that

3396she did not have authority to exempt Ms. Walker from the background

3408screening requirements . She again asked for the outstanding information

3418related to the other teacher and a signed statement indicating Ms. Walker

3430had been removed and no longer had proximity to scholarship students.

344136. On December 23, 2019, Ms. Shealey emailed Ms. Blake that the

3453teacher for which there was an outstanding request had resigned and no longer worked for one of the Schools. Ms. Blake responded with yet another

3478request for the signed statement indicating Ms. Walker had been terminated

3489or was no longer in proximity to scholarship students.

349837. In response , Ms. Shealey sent an email to Ms. Blake with an attach ed

3513letter . The letter titled "Termination of your employment" and dated

3524December 9, 2019, indicates that Ms. Shealey terminated Ms. Walker during a meeting held on December 9, 2019. The letter is unsigned. Ms. Shealey

3548indicated in the text of the email that it was the ha rdest letter she had to

3565write.

356638. Being concerned that they had not received a signed statement ,

3577Ms. Blake and Ms. Williams requested that a site visit be conducted at the

3591Pine Hills Campus. A visit was scheduled for February 5, 2020, and the Schools we re provided notice of the site visit by certified mail, email , and

3618telephone. Additionally, the Schools were provided a checklist of the

3628documents that should be provided to the inspector during the site visit.

364039 . On February 5, 2020, Sc ott Earley from t he Office conducted the site

3656visit at the Pine Hills Campus. When he arrived, Ms. Shealey was not there

3670and none of the documentation previously requested had been prepared for

3681review. Mr. Earley testified that once Ms. Shealey arrived, she did not know

3694wh ere all the requested documents were, nor could she pro duce all of them .

3710For example, when asked about a necessary health form, Ms. Shealey indicated that Ms. Walker would k now w here the document was, but she

3735could not locate it.

373940. Mr. Earley did not recall Ms. Shealey stating during the inspection

3751that Ms. Walker was working from home, but she gave Mr. Earley the

3764impression that Ms. Walker's background screening issue had been resolved.

3774Regardless, t he Site Visit Staff/Consultant Wo rksheet fi l led out for the

3788February 5 site visit does not disclose Ms. Walker as a member of staff or

3803contracted person nel with the Pine Hills Campus. Although Ms. Walker was

3815not at the Pine Hills Campus during the site visit, Mr. Earley believed based

3829on his observations and conversations with Ms. Shealey that Ms. Walker was

3841still employed by the Schools as a director or principal.

385141. Almost t wo weeks later on February 20, 2020, Petitioner filed the

3864Complaints against the Schools. It was not until March 11, 2020, in response

3877to the Complaints that the Schools submitted for th e first time a signed copy

3892of a termination letter dated December 9, 2020.

390042. Even after the Complaints had been served on the Schools, however, it

3913was unclear what Ms. Walker's involvement was with the Schools . There may

3926have been some confusion because Ms. Walker had been seen after her

3938purported termination on campus. Ms. Walker claimed she was on campus

3949only to pick up her children and grandchildren. Testimony from t wo of t he

3964Schools' teacher s indicated that they noticed Ms. Walker was no longer at the

3978Schools, but knew she was taking care of the Schools' paperwork from her

3991home. Neither teacher could establish a date certain for when M s. Walker

4004stopped working on campus and/ or when she began working at home.

40164 3 . Prior to the filing of the Complaints in these proceedings, there was no

4032evidence that the Schools ever reported to the Office that Ms. Walker had

4045been working from home. Not hi ng in the Petition filed o n March 4, 2020,

4061indicates Ms. Walker was still employed at the Schools. It was not until

4074March 11, 2020, in response to the Complaints that the Schools submitted for

4087th e first time a signed copy of a termination letter dated December 9, 2020.

410244. As part of the March 11 submission, Ms. Shealey sent a signed

4115statement indicating she had not terminated Ms. Walker, but rat her "had her

4128work from home." This wa s the first time Ms. Shealey indicated to the Office

4143that Ms. Walker was still working for the Schools.

41524 5 . In the Motion filed April 10, 2020, t he Schools indicated the y were

4169unaware of the specifics of the Level 2 b ackground screening requirement,

4181and that , once aware, "we took action immediately and terminated the

4192employee in question." There was no indication in the body of the M otion the

4207Schools continued to employ Ms. Walker to work at her home. Attached to the

4221M otion, however, was the same letter submit ted on March 11 indicating

4234Ms. Walker was working from home.

42404 6 . In the Amended Petition filed on May 15, 2020, the Schools state

4255Ms. Walker was terminated:

"4259I terminated Ms. Lorene Walker due to the Department's information in order to come into compliance with the Florida

4278Department of Education ."

"4282I rectified this deficiency by terminating Ms. Walker. "

" 4290Ms. Lorene Walker was terminated on December 9, 2019 , as

4300advised by Whitney Blake."

430447. Although the Amended Petition does not explicitly state Ms. Walker

4315continued to work for the Schools at home, it does leave room for this

4329interpretation : "As of December 9, 2019, Ms. Lorene Walker no longer works

4342in the Lion of Judah facility."

434848 . It is unclear on what date Ms. Walker stopped work ing fro m home for

4365the Schools. What is clear is that at the time of the final hearing she was no

4382longer work ing at the Schools in any location or in any capacity.

4395U LTIMATE F ACTUAL D ETERMINATIONS

44014 9 . The greater weight of the evidence establishes Ms. Walker , in her role

4416as Administrator, should have been disclosed to the Office as an "operator" or

"4429a person with equivalent decision making authority." The Schools were

4439required to send her background screening documentation to the Office as

4450required by the Comp liance Form and section 1002.421(1)(p), and they did

4462not.

446350 . The Schools employed a person with a disqualifying offense in

4475violation of section s 1002.421(1)(m) and 435.04(2)(ss) . Specifically, the

4485Schools employed Ms. Walker from 2014 (if not earlier) th rough December

44972019 (if not later) in a position in which she was in the vicinity of scholarship

4513students, knowing that she had been found guilty of a felony and without

4526obtaining or providing documentation related to a Level 2 background

4536clearance.

453751 . T he Schools continued to allow Ms. Walker to remain in a position

4552tha t placed her in the vicinity of scholarship students after receiving

4564notification of her ineligibility for almost a month (if not more).

457552 . The greater weight of the evidence establishes the Schools engaged in

4588fraudulent activity, to wit: (1) Ms. Shealey falsely represented to the Office

4600that the Schools complied with Section 4 of the Co mpliance Form for 2018

4614and 2019; (2) the Schools falsely obscured Ms. Walker's role at the School and

4628he r criminal background ; and (3) the Schools failed to honestly di sclose

4641Ms. Walker's employment status when they claimed to terminate her on

4652December 9, 2020, but failed to inform the Office that they had retained (or

4666rehired) her to work at home. The Schoo ls made these statements of material

4680fact either knowing they were false or in reckless disregard of the truth or

4694falsity of the representations, which were false.

4701C ONCLUSIONS OF L AW

47065 3 . DOAH has personal and subject matter jurisdiction in this proceeding

4719pursuant to sections 120.569, 120.57(1), and 1002.421(3)(c), Florida Statutes.

472854 . The burden of establishing the grounds for suspending or revoking a

4741private school's participation in the scholarship programs at issue falls on the

4753Commissioner, who must prove the allegations by a preponderance of the

4764evidence. Se e S tewart v. Silva of So uth Florida, Inc. , Case No. 17 - 3898SP,

47812017 WL 9285925, at *10 (Fla. DOAH Dec. 11, 2017; Fla. DOE Mar. 14, 2018)

4796(citing Fla. Dep't of Transp. v. J.W.C. Co., Inc. , 396 So. 2d 778, 788 (Fla. 1st

4812DCA 1981)); see also § 120.57(1)(j), Fla. Stat.

482055 . Private s c hool employees of schools participating in the Florida

4833Scholarship Programs are subject to certain background screening

4841requirements found in s ection 1002.421, which provides in relevant part:

4852(1) PRIVATE SCHOOL ELIGIBILITY AND

4857OBLIGATIONS. — A private scho ol participating in

4865an educational scholarship program established

4870pursuant to this chapter must be a private school as defined in s. 1002.01(2) in this state, be registered, and be in compliance with all requirements of this

4898section in addition to private school requirements

4905outlined in s. 1002.42, specific requirements

4911identified within respective scholarship program

4916laws, and other provisions of Florida law that apply

4925to private schools, and must:

4930* * *

4933(e) Annually complete and submit to the

4940department a notarized scholarship compliance

4945statement certifying that all school employees and

4952contracted personnel with direct student contact

4958have undergone background screening pursuant to

4964s. 943.0542 and have m et the screening standards

4973as provided in s. 435.04.

4978* * *

4981( m) Require each employee and contracted

4988personnel with direct student contact, upon

4994employment or engagement to provide services, to

5001undergo a state and national background screening,

5008pursuant t o s. 943.0542, by electronically filing

5016with the Department of Law Enforcement a complete set of fingerprints taken by an authorized

5031law enforcement agency or an employee of the

5039private school, a school district, or a private company who is trained to take fingerprints and

5055deny employment to or terminate an employee if he

5064or she fails to meet the screening standards under

5073s. 435.04. Results of the screening shall be provided

5082to the participating private school. For purposes of this paragraph:

50921. An “employ ee or contracted personnel with

5100direct student contact” means any employee or

5107contracted personnel who has unsupervised access

5113to a scholarship student for whom the private

5121school is responsible.

5124* * *

5127(p) Require each owner or operator of the private

5136sc hool, prior to employment or engagement to

5144provide services, to undergo level 2 background screening as provided under chapter 435. For purposes of this paragraph, the term “ owner or

5167operator” means an owner, operator, superintendent, or principal of, or a person with

5180equivalent decision making authority over, a private school participating in a scholarship program established pursuant to this chapter. The

5199fingerprints for the background screening must be electronically submitted to the Department of Law En forcement and may be taken by an authorized

5222law enforcement agency or a private company who is trained to take fingerprints. However, the

5237complete set of fingerprints of an owner or operator

5246may not be taken by the owner or operator. The owner or operator shall provide a copy of the

5265results of the state and national criminal history check to the Department of Education. The cost of the background screening may be borne by the owner or operator. (emphasis added).

52955 6 . A s found previously, pursuant to section 435.04(2) (ss), Ms. Walker

5309pled nolo contendere to a second - degree felony under chapter 893 and

5322therefore was disqualified from having contact with scholarship students or

5332serving as an operator of a private school receiving Florida Sch olarship

5344Program funds .

53475 7 . The Commissioner is tasked with enforcing these background

5358screening requirements and can suspend a private school's eligibility for

5368participating in scholarship programs pursuant to section 1002.421, which states in relevant pa rt:

5382(3) COMMISSIONER OF EDUCA TION

5387AUTHORITY AND OBLIGATIONS. — The

5392Commissioner of Education:

5395( a) Shall deny, suspend, or revoke a private

5404school’s participation in a scholarship program if it is determined that the private school has failed to comply with this section or exhibits a previous

5429pattern of failure to comply. However, if the

5437noncompliance is correctable within a reasonable

5443amount of time, not to exceed 45 days, and if the health, safety, or welfare of the students is not threatened, the comm issioner may issue a notice of

5472noncompliance which provides the private school

5478with a timeframe within which to provide evidence

5486of compliance before taking action to suspend or revoke the private school’s participation in the scholarship program.

5503* * *

5506( d) May immediately suspend payment of

5513scholarship funds if it is determined that there is

5522probable cause to believe that there is:

5529* * *

55323. Fraudulent activity on the part of the private

5541school.

55425 8 . The Commissioner's order immediately suspending payme nts "may be

5554appealed" by timely filing a request for hearing pursuant to sections 120.569

5566and 120.57 . § 1002.39(7)(c), Fla. Stat. As explained in Stewart , the

5578Commissioner's decision for immediate suspension is based on probabl e

5588cause. In this administrati ve hearing, however, the facts must be supported

5600by the greater weight of the competent substantial evidence. The

5610Commissioner must show that more likely than not, the Schools engaged in fraudulent activity. Stewart , 2017 WL 9285925, at *12.

56305

56315 9 . The essential elements of a fraud claim are: (1) a false statement

5646concerning a material fact; (2) made (i) with knowledge that the representation is false and (ii) with the intention of inducing another's

5668reliance thereon; and (3) consequent injury to t he other party acting in

5681reliance on the false representation. See, e.g., Cohen v. Kravit Estate Buyers,

5693Inc. , 843 So. 2d 989, 991 (Fla. 4th DCA 2003).

570360 . "[F]raudulent intent usually must be proved by circumstantial

5713evidence and such circumstances may, by their number and joint

5723consideration, be sufficient to constitute proof." Nally v. Olsson , 134 So. 2d

5735265, 267 ( Fla. 2d DCA 1961). As proof of fraud , the Commissioner can show

"5750a series of distinct acts, each of which may be a badge of fraud and when

5766taken together as a whole, constitute fraud." Dep't of Rev. v. Rudd , 545 So. 2d

57815 The evidentiary burden is not "clear and convincing" because scholarship participation does

5794not equate to a license. Unlike a licensee whose license is revoked, a school may keep its

5811doors open and continue to operate. Stewart , 2017 WL 9285925, at *12. Cf. Balino v. Dep't of

5828HRS , 348 So. 2d 349, 350 (Fla. 1 st DCA 1977) (imposing burden on State to prove by a

5847preponderance of evidence grounds for discontinuing, suspending, or reducing public assistance such as Medicaid benefits).

5862369, 372 (Fla. 1st DCA 1989) (quotations omitted) . Further, "[s]cienter, or

5874gui lty knowledge, [which] is an element of intentional misconduct [such as

5886fraud], ... can be established by showing actual knowledge, or that the

5898defendant was reckless or careless as to the truth of the matter asserted."

5911Ocean Bank of Miami v. INV - UNI Inv. Corp. , 599 So. 2d 694, 697 (Fla. 3d

5928DCA 1992).

593061 . The undersigned has found, as recited above, that the Commissioner

5942carried the burden of proof regarding the allegations of Count I . Specifically,

5955it has established the Schools employed Ms. Walker, someon e with a

5967disqualifying offense, since 2014. The Schools also failed to provide a copy of

5980the results of Ms. Walker's criminal background screening during the 2018

5991and 2019 compliance process.

599562 . Additionally, regarding the fraud allegations in Count II, t he evidence

6008taken as a whole shows the Schools knowingly and willfully concealed the

6020true nature of the emp loyment relationship with Ms. Walker in order to

6033circumvent the criminal background requirements and continue the receipt of

6043scholarship funds, there by committing fraud or fraudulent activity.

6052Ms. Shealey (who executed the Compliance Forms) and Ms. Walker ( who was

6065in charge of the Schools' compliance paperwork ) knew she had committe d the

6079disqualifying offense . Although the Schools argued they thought the

6089background issue had been resolved, there was no evidence that it had been.

6102T aken as a whole, the evidence shows that the Schools did not properly

6116background screen their employees, including Ms. Walker; and knowingly

6125allowed her to work as an Administ rator despite her disqualifying offense.

6137The Schools' failure to submit a timely signed statement of Ms. Walker's termination and Ms. Shealey's inconsistent statements regarding

6156Ms. Walker's employment status are suspect. Specifically, Ms. Shealey states

6166r epeatedly that Ms. Walker was terminated on December 9, 2019, but then

6179later states she moved Ms. Walker to work from home on December 9, 2019.

6193These statements contradict the testimony that Ms. Walker was fired

6203sometime in December and then r e - hired in Ja nuary. T he Schools' failure to

6220disclose Ms. Walker's role in operating the school and her employment (or

6232reemployment) during the site visit or at any time before the C omplaints,

6245further supports a finding of fraudulent activity.

625263 . As such, the Commissioner is legally authorized to immediately and

6264indefinitely revoke the Schools' eligibility and participation in the Florida

6274Scholarship Programs.

6276R ECOMMENDATION

6278Based on the foregoing Findings of Fact and Conclusions of Law, it is

6291REC OMMENDED that the Commissioner enter a final order (1) upholding the suspension; and (2) revoking the eligibility of Lion of Judah Academy

6314(4015) and Lion Of Judah Academy (8827) to participate in the following

6326Florida Scholarship Programs: J ohn M. McKay S cholarships for Students with

6338Disabilities Program, Florida Tax Credit Scholarship Program, Gardiner

6346Scholarship Program, Hope Scholarship Program, and /or Family

6354Empowerment Scholarship Program .

6358D

6359ONE A ND E NTERED this 3rd day of November , 2020 , in Tallahassee, Leon

6373County, Florida.

6375H ETAL D ESAI

6379Administrative Law Judge

6382Division of Administrative Hearings

6386The DeSoto Building

63891230 Apalachee Parkway

6392Tallahassee, Florida 32399 - 3060

6397(850) 488 - 9675

6401Fax Filing (850) 921 - 6847

6407www.doah.state.fl.us

6408Filed with the Clerk of the

6414Division of Administrative Hearings

6418this 3rd day of November , 2020 .

6425C OPIES F URNISHED :

6430Jason Douglas Borntreger, Esquire

6434Department of Education

6437Suite 1544

6439325 West Gaines Street

6443Tallahassee, Florida 32310

6446(eServed)

6447Judith Shealey

6449Lion of Judah Academy

64531056 North Pine Hills Road

6458Orlando, Florida 32808

6461Shawn R. H. Smith, Esquire

6466Law Office of Shawn R. H. Smith, P.A.

6474Post Office Box 547752

6478Orlando, Florida 32854

6481(eServed)

6482Chris Emerson, Agency Clerk

6486D epartment of E ducation

6491Turlington Building, Suite 1520

6495325 West Gaines Street

6499Tallahassee, Florida 32399 - 0400

6504(eServed)

6505Matthew Mears, General Counsel

6509Department of Education

6512Turlington Building, Suite 1244

6516325 West Gaines Street

6520Tallahasse e, Florida 32399 - 0400

6526(eServed)

6527Richard Corcoran

6529Commissioner of Education

6532Department of Education

6535Turlington Building, Suite 1514

6539325 West Gaines Street

6543Tallahassee, Florida 32399 - 0400

6548(eServed)

6549N OTICE OF R IGHT T O S UBMIT E XCEPTIONS

6560All parties have the right to submit written exceptions within 1 0 days from

6574the date of this Recommended Order. Any exceptions to this Recommended

6585Order should be filed with the agency that will issue the Final Order in this case.

Select the PDF icon to view the document.
PDF
Date
Proceedings
PDF:
Date: 11/06/2020
Proceedings: Transmittal letter from Loretta Sloan forwarding Petitioner's Exhibit to Petitioner.
PDF:
Date: 11/03/2020
Proceedings: Recommended Order
PDF:
Date: 11/03/2020
Proceedings: Recommended Order (hearing held August 12, 2020). CASE CLOSED.
PDF:
Date: 11/03/2020
Proceedings: Recommended Order cover letter identifying the hearing record referred to the Agency.
PDF:
Date: 10/20/2020
Proceedings: Respondents Proposed Recommended Order filed.
PDF:
Date: 10/19/2020
Proceedings: Petitioner's Proposed Recommended Order filed.
PDF:
Date: 10/08/2020
Proceedings: Order on Proposed Recommended Orders.
PDF:
Date: 10/07/2020
Proceedings: Notice of Filing Transcript.
Date: 10/07/2020
Proceedings: Transcript of Proceedings (not available for viewing) filed.
Date: 08/12/2020
Proceedings: CASE STATUS: Hearing Held.
PDF:
Date: 08/11/2020
Proceedings: Joint Proposed Exhibits filed.
Date: 08/11/2020
Proceedings: Petitioner's Proposed Exhibits filed (exhibits not available for viewing).
PDF:
Date: 08/07/2020
Proceedings: Amended Pre-Hearing Stipulation filed.
PDF:
Date: 08/06/2020
Proceedings: Amended Notice of Hearing by Video Teleconference (hearing set for August 12, 2020; 9:30 a.m.; Altamonte Springs and Tallahassee, FL; amended as to Time).
PDF:
Date: 08/06/2020
Proceedings: Order on Motion to Compel Discovery Responses to Petitioner's First Request for Production.
Date: 08/05/2020
Proceedings: CASE STATUS: Motion Hearing Held.
PDF:
Date: 08/04/2020
Proceedings: Notice of Motion Hearing by Zoom (Motion hearing set for August 5, 2020; 10:00 a.m.; Tallahassee).
PDF:
Date: 08/03/2020
Proceedings: Joint Pre-Hearing Stipulation filed.
PDF:
Date: 07/31/2020
Proceedings: Respondent's Response in Opposition to Petitioner's Motion to Compel Responses to Petitioner's First Request for Production filed.
PDF:
Date: 07/27/2020
Proceedings: Motion to Compel Responses to Petitioner's First Request for Production filed.
PDF:
Date: 06/23/2020
Proceedings: Order of Pre-hearing Instructions.
PDF:
Date: 06/22/2020
Proceedings: Notice of Serving Petitioner's First Set of Interrogatories and First Request for Production filed.
PDF:
Date: 06/19/2020
Proceedings: Order Rescheduling Hearing by Video Teleconference (hearing set for August 12, 2020; 9:00 a.m.; Altamonte Springs and Tallahassee, FL).
Date: 06/17/2020
Proceedings: CASE STATUS: Pre-Hearing Conference Held.
PDF:
Date: 06/17/2020
Proceedings: Notice of Appearance (Shawn Smith; filed in Case No. 20-002513SP).
PDF:
Date: 06/17/2020
Proceedings: Notice of Appearance (Shawn Smith) filed.
PDF:
Date: 06/04/2020
Proceedings: Order of Consolidation (DOAH Case Nos. 20-2512 and 20-2513)
PDF:
Date: 06/04/2020
Proceedings: Instructions For Remote Participation.
PDF:
Date: 06/04/2020
Proceedings: Notice of Hearing (hearing set for June 23, 2020; 9:00 a.m.; Tallahassee).
PDF:
Date: 06/04/2020
Proceedings: Procedural Order.
PDF:
Date: 06/04/2020
Proceedings: Notice of Zoom Pre-hearing Conference (set for June 17, 2020; 2:00 p.m.).
Date: 06/03/2020
Proceedings: CASE STATUS: Pre-Hearing Conference Held.
PDF:
Date: 06/03/2020
Proceedings: Notice of Telephonic Pre-hearing Conference (set for June 3, 2020; 1:00 p.m.).
PDF:
Date: 06/03/2020
Proceedings: Notice sent out that this case is now before the Division of Administrative Hearings.
PDF:
Date: 06/02/2020
Proceedings: Initial Order.
PDF:
Date: 06/01/2020
Proceedings: Emails from Judith Shealey filed.
PDF:
Date: 06/01/2020
Proceedings: Motion to Amend and Reverse Your Decision filed.
PDF:
Date: 06/01/2020
Proceedings: Second Order Dismissing Petition with Leave to Amend filed.
PDF:
Date: 06/01/2020
Proceedings: Order Dismissing Petition with Leave to Amend filed.
PDF:
Date: 06/01/2020
Proceedings: Administrative Complaint filed.
PDF:
Date: 06/01/2020
Proceedings: Amended Petition for Administrative Hearing filed.
PDF:
Date: 06/01/2020
Proceedings: Agency referral filed.

Case Information

Judge:
HETAL DESAI
Date Filed:
06/01/2020
Date Assignment:
06/03/2020
Last Docket Entry:
11/06/2020
Location:
Altamonte Springs, Florida
District:
Middle
Agency:
Department of Education
Suffix:
SP
 

Counsels

Related Florida Statute(s) (11):