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.
Recommended Order on Tuesday, November 3, 2020.
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
5404schools 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 schools 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.
- 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 cover letter identifying the hearing record referred to the Agency.
- Date: 10/07/2020
- Proceedings: Transcript of Proceedings (not available for viewing) filed.
- Date: 08/12/2020
- Proceedings: CASE STATUS: Hearing Held.
- Date: 08/11/2020
- Proceedings: Petitioner's Proposed Exhibits filed (exhibits not available for viewing).
- 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: 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: 06/22/2020
- 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: 06/04/2020
- Proceedings: Notice of Hearing (hearing set for June 23, 2020; 9:00 a.m.; Tallahassee).
- 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.).
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
-
Jason Douglas Borntreger, Esquire
Address of Record -
Judith Shealey
Address of Record -
Shawn R. H. Smith, Esquire
Address of Record