Florida K-12 Construction Landscape: Challenges and Opportunities with Planning Director Scott Leopold
The future of education facilities in Florida is at a turning point. From safety concerns to the complexities of funding, many districts in the state are facing challenges on how to best plan for their capital programs over the next decade.
HPM Director of Planning Services, Scott Leopold, is local to Florida and has led planning projects within the state and nationwide. Leopold recently shared some top concerns affecting Florida K-12 projects.
The Cost Per Student Station: A Lingering Concern
In the past Florida has operated under a cost-per-student-station requirement. The state sets limits on how much can be spent to build classroom space, a policy originally designed to control costs. However, a moratorium was placed on the requirement during the Covid-19 pandemic. The moratorium is now set to expire in 2028.
With uncertainty around next steps and rising construction and safety costs for K-12 facilities, many districts are anxious about how school construction projects will be affected and are considering this when planning their current long-range facility plans.
Safety Needs Come at a Price
Florida’s history of open-air campuses is now at odds with modern safety expectations. With safety concerns growing for K-12 campuses, open-air facilities are becoming less popular, and communities prefer buildings that will ensure student safety. Yet upgrading facilities for safety and security adds significant costs—costs that current mandates don’t align with.
Funding Challenges and Shifts
Florida’s education system is increasingly influenced by the growth of charter and voucher programs, which redirect public money to private schools. This raises questions about long-term sustainability for traditional public schools.
Districts also face challenges with overall funding for K-12 projects. Unlike some states that use bond programs, Florida requires each district to maintain a long-term capital plan funded primarily by sales tax. When additional revenue is needed, raising the sales tax often becomes the solution.
To complicate matters further, school systems must manage two separate funding “buckets”: capital funds and operating funds, each with strict limitations on how they can be used.
Florida K–12 Projects in Action
HPM has partnered with Florida school districts for decades, helping them navigate these challenges with data-driven planning.
In Duval County, home to 110,000 students, aging facilities and declining enrollment have created significant obstacles. Working alongside Planning VP Tracy Richter, Leopold has supported the district with enrollment and demographic analysis, educational standards development, adequacy assessments, portfolio right-sizing, and community engagement.
“HPM has seamlessly worked with our current program team to continuously update our data as we move through our capital program,” said Duval County Public Schools CFO Ronald Fagan.
Planning for the Future: How Do We Solve Challenges?
While these constraints are real, there are also opportunities. Thoughtful planning can make a difference, and firms working alongside districts are helping identify strategies to maximize available dollars. Tools like GIS mapping, long-range tax planning, and holistic program management allow schools to stretch resources further.
Planning teams develop a long-term, relationship-driven approach with districts to ensure proper planning for each project phase and anticipate challenges before they disrupt the process. Instead of quick fixes, they commit to working with districts for 12–18 months or more, ensuring sustainable solutions that align with evolving needs.
“We know the questions to ask from multiple perspectives during multiple phases,” Leopold said, “That expertise allows us to save districts more money than our services cost.”
Looking Ahead
The central question Florida educators and planners continue to ask is: How can we maximize the funds we’re putting into the classroom?
Answering this requires balancing cost control with modern safety demands, navigating shifting political and economic conditions, and creating long-term plans that make every dollar count. With smart planning and strong partnerships, Florida schools can meet today’s challenges while preparing for tomorrow’s opportunities.
