Peer Group Analysis

But what about school districts with comparable student enrollment and that are in the same region of Florida?

A comparison of five similarly sized Florida school districts (See table below) shows Leon County Schools employs significantly more administrators and non-instructional staff than most of its peers, despite having a student population nearly identical to several neighboring districts.

The Florida department of Education data provides a standardized comparison among districts and their peers, offering a snapshot of how Leon County’s staffing levels compare with those across the state during the 2025-26 school year. The FDOE administrator category includes principals, assistant principals, and deans. The non-instructional category includes social workers, school psychologists and school counselors.

According to 2025-26 staffing data, Leon County Schools serves 30,964 students, making it the second-largest district among the comparison group behind Okaloosa County, which enrolls 31,055 students. Despite the similar enrollment figures, Leon County employs 211 administrators, substantially more than Okaloosa’s 144 administrators. These 211 adminstrators include 81 assistant principals TR has previously reported on.

Leon also exceeds Santa Rosa County’s 110 administrators and Alachua County’s 173 administrators. Only Bay County, with 222 administrators serving 27,126 students, reports a higher administrative total. The disparity is even greater among non-teacher instructional and support staff. Leon County employs 415 noninstructional personnel, the highest total among the five districts.

By comparison, Santa Rosa and Alachua counties each employ 248 non-teacher staff members, Bay County employs 239, and Okaloosa County employs 226.

The average number of administrators and non-teacher instructional staff for the Leon’s peer group is 403. This is 224 staff members less than the numbers reported by LCS.

The staffing comparison comes as school districts across Florida face budget pressures tied to enrollment trends and increased scrutiny of administrative spending. The figures come as LCS continues to confront declining student enrollment, a trend that reduces state funding because Florida’s education formula is largely based on student counts. Critics have argued that administrative growth has outpaced enrollment trends and have called for closer scrutiny of staffing levels outside the classroom. Supporters of the district’s staffing structure contend that modern school systems require specialized personnel to manage student services, accountability requirements, technology, safety initiatives, and other operational responsibilities that have expanded in recent years.

The staffing comparisons are likely to attract additional attention as district leaders evaluate budget priorities and as community members debate proposals involving school funding and operational efficiency.

LCS Addresses Staffing Issue

During the last school board meeting, elected officials voted 4-1 to approve the placement of a 1 mil property tax increase on the November ballot. If passed by the voters, the tax would raise approximately $24 million. After the vote, Chair Marcus Nicolas acknowledged the concern about staffing but took the position that the tax increase and the “administrative structure” were not connected. The board scheduled a workshop to address the issue.

The adopted resolution specifically targets “compensation” for teachers and staff. Board members spent significant time debating the word “compensation” versus “pay,” eventually settling on the former because it is broader and includes benefits. While the ballot title focuses on teachers due to word count limits, the full 75-word ballot language will explicitly include support staff, such as bus drivers, custodians, and cafeteria workers.

The lone dissenting vote came from Laurie Cox, who expressed deep concern over the burden on local taxpayers. Cox noted that while the board had not raised the millage rate in years, rising property values have already resulted in de facto tax increases. “I just feel like right now is not the right time to ask our taxpayers for more money,” Cox said, arguing the district should find savings within its existing budget rather than adding to a tax load that already includes the Children’s Services Council.

Other members, however, argued that the district has reached a breaking point. Rosanne Wood contended that the board has already “cut to the bone”. She noted that Leon County is competing with Georgia, where teachers often make significantly more, and with 29 other Florida counties that have already passed similar millage increases. Wood stated that to find equivalent funding without the tax, the district would have to close approximately 26 neighborhood schools, which she called “pillars of our communities”.

Member Smith offered what she called “reluctant support”. Though she campaigned on increasing teacher salaries, she expressed frustration that the board had not pursued school consolidations or administrative downsizing before asking the public for more money. Ultimately, she decided to support the measure to let the community decide the value of teacher pay.

Member Daryl Jones emphasized the importance of “direct democracy,” framing the vote as an opportunity for citizens to weigh in on community values.

Addressing public concerns about “administrative bloating,” the Chair Marcus Nicolas acknowledged the issue but insisted the board could “walk and chew gum at the same time,” addressing administrative structure through separate, ongoing discussions while the tax measure proceeds.

School board member Laurie Cox voted no.

Board members said the referendum is needed to provide additional flexibility in the district’s budget, particularly as rising operational costs and state funding challenges strain finances. District officials have pointed to increasing health insurance costs, restricted funding streams, and the impact of school choice programs as contributing factors behind the budget difficulties. Earlier this year, the district cut nearly $7 million from its budget while also pursuing renewal of a separate half-cent sales tax.

The measure, which now advances to the Leon County Commission for ballot placement approval, would increase property taxes for four years beginning in 2027 if approved by voters.

The proposal has drawn criticism from residents and community observers who argue the district has not adequately addressed long-term financial management issues before seeking additional taxpayer funding. Critics have highlighted that student enrollment in Leon County has declined for at least five consecutive years, while the district has continued adding administrative positions.

Questions about administrative growth have become a focal point in the debate. Critics contend the district has failed to explain why more administrative staff are needed despite serving fewer students. Others have called for an independent review of the district budget before voters are asked to approve higher property taxes.

Supporters of the referendum argue the additional funding is necessary to maintain employee pay, school safety initiatives, and educational services amid continued financial uncertainty.

After the vote, board members and Superintendent Hanna pledged to address the administrative staffing issue.

The item will come before the Board on Tuesday, May 26, 2026.

Originally, school board members talked about how the property tax revenue would be used just for teacher salaries. However, now that has changed and the language that will go before the voters in November will allow the new property tax revenue to be used for all school staff pay, not just teachers.

The property tax proposal – not to be confused with the half-penny sales tax – would raise approximately $24 million annually from Leon County property owners. That is a significant burden at a time when residents are already dealing with rising insurance costs, inflation, and higher property taxes driven by increasing home values. Before asking citizens for more money, the school board must demonstrate that it is managing current resources responsibly.

One of the biggest unanswered questions involves declining enrollment. Student population in Leon County Schools has been falling for at least the last five years. In most organizations, shrinking demand leads to restructuring and cost reductions. And while some cuts have been adopted for this year, new tax revenue could make it easier for officials to delay difficult but necessary decisions.

Also, while enrollment declined, the school board hired more administrators. Some have repeatedly asked why additional administrative positions are necessary when fewer students are attending district schools. To date, the district has failed to provide a convincing explanation.

Equally concerning is the lack of long-term planning. School districts across Florida facing enrollment declines have begun difficult but necessary conversations about consolidating campuses, closing underused schools, and streamlining operations. Leon County Schools has offered no comparable plan despite clear demographic trends.

Avoiding these discussions does not make the financial realities disappear. Maintaining underutilized facilities while expanding administrative overhead is not a sustainable strategy, particularly when district leaders are simultaneously asking homeowners for another $24 million each year.

Before any property tax increase moves forward, the school board should invite respected community leaders, business executives, financial professionals, and parents to conduct an independent review of the district budget. A collaborative process could identify efficiencies, reduce waste, and build public trust. Taxpayers deserve to know that every reasonable reform has been considered before they are asked to pay more.

Public education is vital to Leon County’s future, but accountability matters too. Voting against this proposed tax increase would be a vote for transparency, responsible planning, and fiscal discipline.

Recent TR Related School Board Reports

Fewer Students, Higher Taxes

LCS Leads State in Assistant Principal Positions

Double Digit Enrollment Drops Hit Five Florida School Districts

LCS Seeks Renewal of Half-Penny Sales Tax, $500M in Revenue

Leon County School Board Wrangle Over Budget Cuts

LCS Board Rejects Citizen Review in 3-2 Vote

LCS Adds 47 Administrators as Student Enrollment Declines

The analysis also addressed a meeting attended by two school members and the implications related to the Florida Sunshine law.

The memorandum, dated May 19 and authored by attorney Louise Wilhite-St Laurent, analyzed RFQ 113-2026, the solicitation for construction manager services related to the new construction, renovation, demolition and site work project at Raa Middle School.

According to the memo, the district issued the request for qualifications on Feb. 12 through its public procurement portal. Seven firms submitted responses that were deemed responsive and advanced to the scoring process.

The memo acknowledged that district staff initially calculated interview scores using only five committee members instead of six, but noted that the corrected calculation did not change the final vendor rankings.

The legal analysis states that vendors had multiple opportunities under Florida law to protest the solicitation, the short-list selection process and the final recommended award, but no protests were filed within the required 72-hour windows. The memo argues that the failure to file timely protests waived the vendors’ rights to later challenge the process.

The attorney ultimately concluded that the superintendent’s recommendation to award the contract to Rippee Construction is “legally sound” and can be approved by the School Board “without significant subsequent legal risk.”

The memorandum also addressed questions surrounding an April 29 information meeting attended by two School Board members and representatives from construction firms. The meeting raised concerns about whether the gathering violated Florida’s Sunshine Law or the district’s Cone of Silence policy governing procurement communications.

The two school members attending the meeting were Daryl Jones and Marcus Nicolas.

Wilhite-St Laurent concluded that no Sunshine Law violation occurred because no official action was taken or intended during the meeting. The memo further stated there was no substantive discussion of the RFQ itself and therefore no Cone of Silence violation.

The item is scheduled to be addressed at the May 26 Leon County School Board meeting.

Pasco County, near Tampa, is second with 397.5 students for every assistant principal position. The state average is one assistant principal position for every 486.6 students.

The data shows that LCS employees 88 assistant principals. If LCS followed the state average, the number of assistant principals would be reduced to 62 positions, a decline of approximately 27%.

TR has previously reported that from 2018-219 to 2024-25, LCS school administrators increased by 28%, from 170 to 217. The 47 positions added during this period included 13 assistant principals.

As these administrator positions were being added, the number of students dropped by approximately 8%, from 33,543 in 2018 to 29,990 in 2024. In addition, the number of teachers decreased from 2,070 in 2018 to 1,772 in 2024. Also, the “School Administration” budget line item increased by $23% or $4.7 million, from $20.4 million to $25.1 million.

Statewide, Florida’s K-12 student population declined from 2.84 million students in 2018-19 to 2.79 million in 2024-25, a decrease of about 53,700 students, or 1.9%.

Among large districts, Pinellas County Schools recorded the steepest percentage decline, losing 16.8% of its enrollment over the six-year period. The district dropped from 100,985 students to 84,064 students, a loss of nearly 17,000 students.

The chart below shows the changes in student enrolment from 2018/19 to 2024/25 for districts with over 10,000 students in 2024/25.

Broward County Public Schools posted the largest numeric decline, shedding 29,244 students, or 10.8%. Leon County Schools ranked among the districts with the highest percentage losses, falling 10.6% from 33,543 students to 29,990 students.

Other districts with notable declines included School District of Indian River County at minus 10.6%, Escambia County School District at minus 10%, and Seminole County Public Schools at minus 7.8%.

On the growth side, Hendry County School District recorded the state’s largest percentage increase, nearly doubling enrollment from 7,322 students to 14,194 students, a 93.9% increase.

Several fast-growing districts were concentrated in Central and Northeast Florida. St. Johns County School District grew 21.7%, while Walton County School District increased 20.2% and St. Lucie Public Schools expanded 18.4%.

Other districts posting sizable gains included Pasco County Schools at 9.6%, Lee County School District at 7.4%, and School District of Osceola County at 6.7%.

School Closures

Several of the Florida school districts that experienced the largest enrollment declines since 2018-19 are now actively closing or consolidating schools because of falling student numbers and related budget pressures.

Pinellas County Schools, which posted the state’s largest percentage decline among major districts at 16.8%, has already approved multiple school closures and consolidations. In February 2026, the school board voted to close Cross Bayou Elementary and Disston Academy while also merging and restructuring other campuses to address long-term enrollment losses and rising operating costs.

District officials said the changes were part of a broader “Planning for Progress” initiative prompted by years of declining enrollment. Earlier in the process, administrators warned that additional closures could follow.

Broward County Public Schools, which lost more than 29,000 students between 2018-19 and 2024-25, is also pursuing a large-scale downsizing effort. The district has considered closing, consolidating, or repurposing dozens of campuses under its “Redefining Our Schools” initiative.

Reports indicate Broward officials proposed shutting down at least seven schools amid a projected budget shortfall tied to declining enrollment.

Statewide, enrollment losses have been linked to lower birth rates, expanded school choice programs, charter school growth, homeschooling, and private-school voucher programs. Former Florida Education Commissioner Manny Diaz Jr. said in 2024 that some school closures are an expected consequence of increased school choice competition.

While Leon County Schools ranked among the districts with the sharpest enrollment declines, current web reports did not show the district formally moving to close schools at this time. Other districts with notable losses, including Escambia County School District and Seminole County Public Schools, also have faced ongoing discussions about capacity and enrollment management, though large-scale closures have not received the same statewide attention as Pinellas and Broward.

According to materials presented to board members, the Tennessee-based company specializes in student recruitment, retention and chronic absenteeism campaigns for public school districts across the country. Caissa says it currently works with more than 100 districts in over two dozen states and uses political-style campaign strategies to identify and recruit students.

The proposal comes as Leon County Schools faces financial pressure linked to declining enrollment. Public school districts receive state funding based largely on student attendance, meaning each student who leaves for a charter school, private school, home-schooling or another district reduces district revenue. Community discussions in Tallahassee have increasingly focused on enrollment losses and potential budget cuts or school consolidations.

The company’s materials describe a “performance-based” model in which districts pay only for students who successfully enroll and attend school. Caissa says it tracks students individually to verify results and uses outreach tactics including canvassing, direct mail, phone calls, digital advertising, community events and grassroots organizing.

Caissa officials argue public school districts now operate in a competitive environment and must actively market their programs to families. The company says its campaigns are designed to improve enrollment trends, increase state funding tied to student counts and strengthen public awareness of district offerings.

One of the biggest questions surrounding Caissa’s proposal is the company’s fee structure. While Leon County Schools has not publicly released a proposed payment amount, contracts in other districts provide insight into the company’s pricing model.

In Orange County Public Schools, district officials approved a contract paying Caissa $935 for every student successfully recruited or recovered who remained enrolled for at least 30 instructional days. District officials there said the company helped re-enroll 1,932 students during the first year of the agreement, generating approximately $1.8 million in payments to Caissa. However, Orange County officials argued each returning student also generated nearly $8,950 in state funding, leaving the district with a net financial gain.

A similar contract approved this year by Hartford Public Schools also pays Caissa $935 per recruited student, with the agreement capped at $500,000.

Caissa describes its services as “performance-based,” meaning districts pay only for verified enrollment results rather than traditional advertising fees. The company’s campaigns include direct mail, phone calls, digital advertising, canvassing, community events and grassroots outreach.

Leon County Schools officials have not yet announced whether the board will move forward with a contract.

District officials recently reviewed a proposal from TPG Cultural Exchange, a U.S. Department of State-designated J-1 visa sponsor that places certified international teachers in K-12 schools across the country. According to the company’s presentation to the district, TPG has more than 15 years of experience and reports a 93% year-over-year teacher retention rate in partner districts.

Publicly identified countries connected to TPG teachers include India, Jamaica, Philippines, Ghana, Uganda, Spain, and France.

The initiative is aimed at helping the district fill hard-to-staff positions, including exceptional student education, STEM fields, English language learning, and elementary education. TPG states that participating teachers must hold the equivalent of a U.S. bachelor’s degree in education, have at least two years of teaching experience, demonstrate English fluency, and obtain Florida certification before entering classrooms.

Under the proposed arrangement, Leon County Schools would interview and select candidates while TPG would manage visa sponsorship, relocation assistance, compliance requirements, and ongoing support services. The company says the J-1 visas are initially valid for three years and may be extended to five years with federal approval.

District leaders indicated the recruitment effort would not replace local hiring initiatives, but instead supplement ongoing efforts to address staffing shortages that have affected schools nationwide. Supporters say international teachers can provide students with broader cultural perspectives and global learning opportunities in addition to filling vacancies.

TPG’s materials highlighted partnerships with school districts in Florida and other states, including Duval County Public Schools and Polk County Public Schools.

The Board voted unanimously Tuesday night to move forward with a possible one-point millage rate increase. Board members directed Superintendent Rocky Hanna to prepare a draft resolution that would be ready for discussion on May 11th. A final vote on placing the language on the ballot could take place at the May 11th meeting.

The proposed one-point millage rate increase could generate $24 million for the district.

Officials noted that the property tax plan will include a public workshop where constituents can weigh in.

Leon Classroom Teachers Association President Scott Mazur supports the measure.

“This is an opportunity for us to put in our own hands as a community distributive leadership. Let the community decide. Do you want strong public schools? Do you want great educators in the classroom? Do you want to strengthen our community and the answer is ‘yes’, so we vote for it,” Mazur said.

The half-penny sales tax has been a longstanding funding source for local schools, first approved by voters in 2002 and renewed again in 2012. Since the last renewal, the tax has generated approximately $397 million in revenue to support school facilities and capital improvements. The current voter-approved funding authorization is scheduled to expire on December 31, 2027. District leaders are planning to ask voters to consider another renewal through a referendum proposed for the November 2026 ballot. If approved, the extension of the half-penny sales tax is projected to generate more than half a billion dollars in funding for the school district over the next 15 years, sustaining infrastructure investments.

A central message of the workshop is the growing mismatch between facility needs and available funding. District projections show approximately $1.1 billion in capital needs between 2028 and 2043, driven by aging buildings, safety upgrades, modernization, and enrollment changes. Without renewal of the half-penny tax, officials estimate a $620 million funding gap, which would significantly limit the district’s ability to maintain facilities or build new capacity. The average age of school buildings in the district is roughly 35 years, highlighting the scale of deferred maintenance and renovation needs.

The presentation also provided a detailed breakdown of projected expenditures across five major departmental or functional categories that would be funded through the sales tax extension. These categories represent the core areas of capital investment necessary to sustain school operations over the next 15 years.

Five Department Expense Categories and Projected Expenditures (2028–2043)

1) Facilities Renewal and Maintenance — approximately $520 million
This category represents the largest share of projected spending and includes roof replacements, HVAC systems, structural repairs, plumbing, electrical upgrades, and general building maintenance. Officials stress that routine maintenance is essential to avoid more costly emergency repairs in the future.

2) New Construction and Capacity Projects — approximately $260 million
Funding in this category would support construction of new school buildings, classroom additions, and campus expansions to address enrollment growth and changing program needs. The district noted that population growth and development patterns will drive demand for additional capacity in certain areas.

3) Safety and Security Improvements — approximately $140 million
This category includes campus security systems, access control technology, surveillance equipment, emergency communications infrastructure, and facility hardening measures. The presentation frames safety investments as a continuing priority following statewide and national school security initiatives.

4) Technology Infrastructure — approximately $110 million
Technology spending focuses on network systems, classroom connectivity, digital infrastructure, and equipment necessary to support modern instructional environments. Officials note that technology cycles require more frequent upgrades than traditional building systems.

5) Transportation and Support Facilities — approximately $70 million
This category includes maintenance and replacement of transportation infrastructure such as bus compounds, maintenance facilities, and operational support buildings required to sustain district services.

Collectively, these five categories account for the majority of projected capital expenditures through 2043 and illustrate the long-term planning framework used by district administrators.

Another key theme in the presentation is cost escalation. Officials highlighted rising construction and labor costs as major drivers of increased capital needs, noting that delaying projects typically results in higher long-term expenses. The workshop also emphasizes accountability measures, including public reporting, project tracking, and financial oversight to ensure tax revenues are spent only on voter-approved capital improvements.

Pittman’s Connections

ESPMedia is a local public relations firm that was founded in 2007 by Pittman. The firm represents political candidates, local agencies and both non-profit and for-profit organizations. In addition, a query of state business records shows that Pittman is the CEO of the Pittman Law Group and the Chairman of the Big Bend Minority Chamber of Commerce. Pittman is also the host of The Sean Pittman Show, a podcast which offers “a space for… a variety of individuals to let their voice be heard.”

Both the Pittman Law Group and The Sean Pittman Show are listed as clients of ESPMedia.

A search of campaign finance records shows that ESPMedia was a vendor for Leon County School Board member Daryl Jones during the 2018 and 2022 election cycles. Jones is currently running for re-election in 2026. Jones has appeared on The Sean Pittman Show multiple times.

Also, public records show that the Pittman Law Group was hired by the Leon County School Board in 2021 to provide legal services. The contract designated Opal McKinney-Williams (Lead Counsel) as the Board’s General Counsel. The contract called for a monthly retainer of $6,500 which applies for the first 35 hours. Any services provided in excess of the first 35 hours will be billed at the rate of $195 per hour for the Lead Counsel, $165 per hour for all other attorneys, and $75 per hour for paralegals and legal assistants/clerks.

During a May 28, 2024 school board meeting, elected officials voted to exercise the Pittman Law Group’s contract renewal option through June 30, 2027, and revised the monthly retainer to $9,000.00 for forty (40) hours and the hourly billing rates in excess of the first forty (40) hours to $225.00 for the Lead Counsel, and $200.00 for all other attorneys effective July 1, 2024.

In addition, a query of state business records shows that Pittman is the Chairman of the Big Bend Minority Chamber of Commerce. This group lists several companies doing business with the Leon County School Board. In addition, the Leon County School Board and the Leon Schools Foundation are members of the group.

Under this new arrangement, the school board’s general counsel and an elected school board member will be working for different companies controlled by the same person, Sean Pittman, who has various financial interests with the Leon County School Board.

Nicolas told the Democrat “his new role does not pose a conflict with his service on the school board because any potential work between the board and ESPMedia would be handled directly by Pittman.”