Warren County Schools Face $3.2 Million in Capital Needs as Declining Enrollment, Aging Buildings, and Rising Costs Threaten Budget

Warren County Public Schools is facing a difficult financial balancing act as officials begin preparing the fiscal year 2028 budget. Declining student enrollment is putting pressure on state funding; aging buildings and school buses need costly repairs or replacement; and rising employee compensation and health insurance expenses could require millions of additional dollars.

At the same time, school officials say they must improve literacy instruction, meet special education requirements, retain qualified employees, and expand career and technical education programs that cannot accommodate all interested students.

Those challenges dominated a joint work session between the Warren County School Board and Warren County Board of Supervisors on Wednesday, October 21, 2026.

At a meeting at Diversified Minds in Front Royal, school administrators presented preliminary budget priorities, including about $3.19 million in proposed capital improvements for the 2027–28 fiscal year. The requests range from a $1.6 million roof replacement at Warren County High School to new buses, classroom technology, and security systems.

The discussion also revealed growing frustration over deferred school maintenance, unanswered financial questions, and the difficulty of planning for future educational needs when existing facilities already require substantial attention.

WCPS FY28 Budget Priorities

Superintendent Dr. Troy Wright opened the presentation by explaining that the division had asked schools and departments to identify their three most pressing needs.

Four major priorities emerged: special education and intervention, literacy and instructional coaching, technology and infrastructure, and facilities, health, and operations.

“I know it’s early, but honestly, as early as it is, there’s so much work to be done,” Wright told the two boards.

School officials emphasized that many requests are tied to state educational requirements and the division’s ability to maintain safe, effective learning environments.

Declining Enrollment Threatens State Funding

One of the school division’s biggest financial challenges is the continuing decline in student enrollment.

“We are not allowed to do as the federal government does and spend more money than we take in,” Ballentine said. “So we have to, by law, have a balanced budget.”

The district’s enrollment chart shows a long-term decline from a peak of approximately 5,392 students during the 2012–13 school year to a projected 4,540 students in 2027–28.

The operating budget forecast uses 4,692 students as its current-year funding baseline and 4,540 for the next fiscal year, a reduction of 152 students.

That enrollment loss represents approximately $900,000 in potential state funding when compared with maintaining the higher student count, according to the presentation.

But Ballentine explained that declining enrollment does not automatically reduce operating expenses.

A school building requires heating, cooling, maintenance, and administrative staffing whether it operates at full capacity or serves fewer students.

Similarly, losing a handful of students across several grade levels does not necessarily eliminate the need for a classroom teacher.

“If all 150 students were scattered in just several classrooms, then you’d see a decreased cost,” Ballentine explained. “But when you scatter it all over the nine different schools and the 12 different, 13 different grade levels, it doesn’t really generate any savings, hardly at all.”

School officials said they closely monitor class sizes and staffing levels to find savings opportunities, but changing enrollment patterns within the county may offset them.

Despite enrollment losses, the preliminary budget forecast shows the division receiving approximately $415,889 more in state revenue next year, largely because of changes within state funding programs.

The presentation projects total state operating revenue of approximately $45.03 million for fiscal year 2028.

The county’s contribution is temporarily projected at its current level of about $34.26 million, while federal funding is projected at about $3.06 million.

Including miscellaneous revenue and the planned transfer to the textbook fund, the initial operating revenue forecast totals approximately $82.34 million, an increase of just $412,884 over the current approved budget.

That relatively small increase in projected revenue does not account for the division’s proposed salary adjustments, health insurance increases, and other operating needs.

Ballentine cautioned that the numbers are preliminary and will change as the state updates its budget, enrollment projections are refined, and local funding decisions are made.

Literacy and Special Education Among Top Educational Priorities

While much of the meeting focused on buildings and finances, the budget presentation identified student instruction and specialized educational services as critical needs.

The division seeks additional support for students with disabilities, including instructional personnel and staff to help schools meet special education requirements.

The presentation specifically identified the need for coaching and professional support for provisionally licensed educators responsible for specially designed instruction, individualized education programs, and regulatory compliance.

Literacy instruction is another major priority.

The division wants to strengthen its ability to meet the Virginia Literacy Act requirements through reading specialists, tutors, and literacy coaches.

School officials identified concerns about students at high risk for reading difficulties across multiple grade levels.

Additional personnel would provide direct intervention while supporting classroom teachers in implementing required instructional programs.

Wright explained that some of the positions are difficult to fill, while others could potentially be staffed by reassigning existing employees. However, moving teachers into specialized positions can create new classroom vacancies that must then be filled.

The division is also seeking a structured four-year replacement cycle for student Chromebooks, along with updated classroom displays and improvements to administrative technology systems.

Facilities-related operating needs include additional maintenance personnel, replacement vehicles, and part-time nursing support for students with complex medical needs.

Those needs are separate from the major capital improvement projects presented later in the meeting.

Schools Request Nearly $600,000 for Textbook Purchases

The school division also wants to continue replacing instructional materials that haven’t been updated regularly for several years.

During the previous budget cycle, the Board of Supervisors provided $200,000 in additional local funding to supplement approximately $412,720 in state textbook funds.

That money let the division buy updated instructional materials, including textbooks, student workbooks, and digital resources.

Wright said the investment is making a noticeable difference in classrooms.

“We spent every penny from last year,” he told supervisors, explaining that the purchases allowed schools to obtain instructional materials they had needed for some time.

For fiscal year 2028, the division is again requesting $200,000 from the county to supplement $399,349 in projected state textbook funding.

That would create a textbook purchasing fund of $599,349.

The next round of purchases would focus on English materials for kindergarten through 12th grade and high school mathematics.

School officials explained that existing contracts for some of those instructional resources expire after the 2026–27 school year.

The ultimate goal is to catch up on overdue textbook replacements and establish a regular adoption schedule that state funding can eventually support largely.

Wright said the division hopes to reach a point where textbook money can accumulate between major purchases rather than being exhausted each year.

$3.19 Million Capital Improvement Plan Targets Buildings, Buses, and Security

The division’s proposed capital improvements for fiscal year 2028 total approximately $3,188,000.

The requests are organized into facilities, transportation, technology, and safety projects. Athletics was included in the division’s broader capital planning categories but did not receive a priority request for the coming year.

The largest single project is a $1.6 million roof replacement at Warren County High School.

The work would replace an aging, ballasted EPDM roof system. School officials said previous building and roof evaluations helped determine which facilities should receive priority.

The district is also requesting $100,000 to improve energy management systems at five schools.

The systems would let maintenance employees better control heating, ventilation, air conditioning, and certain lighting systems.

Officials said the upgrades could improve energy efficiency and help staff identify and troubleshoot mechanical problems more effectively.

Transportation requests total $673,000.

That includes $390,000 for three replacement school buses, $88,000 for two student transportation vehicles, $55,000 for a maintenance vehicle, and $140,000 for a bucket truck.

Technology improvements include $180,000 for a public address system at Warren County High School and $100,000 for classroom displays throughout the division.

Safety-related requests include $400,000 to replace the division-wide telephone system and $135,000 for electronic card readers at school buildings.

Although the projects were presented as priorities, they have not yet received final funding approval.

Fifteen School Buses Already Beyond Recommended Replacement Age

Warren County’s school bus fleet condition received considerable attention.

School officials reported that the division operates 38 school buses, 15 of which are more than 15 years old.

Seven of those buses are more than 20 years old, and four have traveled more than 200,000 miles.

Officials explained that Virginia Department of Education guidance generally calls for replacing buses after 12 to 15 years or about 200,000 miles.

“We have 15 buses right now that need to be replaced,” Dr. Costner told the boards. “We’re not asking for 15 buses; we’re asking for three.”

The proposed plan would replace three buses each year for several years, then transition to a regular replacement schedule.

Interim Transportation Director Tony Bernal explained that older buses become more expensive to maintain as mechanical components wear out and corrosion damages the vehicles.

Salt used on roads during winter weather is a particular concern.

Bernal said some major engine repairs can cost approximately $35,000.

“You’re spending a quarter of a new bus right there,” he said.

The division is also concerned about its fleet of smaller student transportation vehicles.

These vehicles serve students who cannot practically be transported using traditional bus routes.

Bernal explained that Warren County transports some students to specialized programs in other communities, including Winchester, Berryville, Manassas, Fairfax, and other locations.

The vehicles also serve students experiencing homelessness and children in foster care who need transportation to maintain educational continuity.

Some students must travel long distances, adding substantial mileage.

Of the division’s 19 smaller transportation vehicles, seven have already exceeded 150,000 miles.

The division requests two replacement vehicles annually, estimated at $44,000 each.

Officials also described a shortage of operational maintenance trucks.

Several older trucks have been removed from regular road service and used for snow removal, but some have deteriorated to the point that they can no longer perform even that duty.

The requested bucket truck would allow maintenance and technology personnel to safely access elevated equipment, including parking lot lighting.

During the discussion, a supervisor suggested looking for a well-maintained used bucket truck rather than purchasing a new one.

School officials agreed that a suitable used vehicle could potentially meet their needs at a lower cost.

Aging Communication Systems Raise Safety Concerns

Technology officials warned that several school communication systems are approaching the point where repairs are becoming increasingly difficult.

Warren County High School’s public address system was identified as an especially pressing concern.

Officials explained that the existing system requires hard-to-find replacement parts, including components bought through online resale sources.

Communicating throughout a school building is essential not only for daily announcements but also for emergencies.

The district is requesting $180,000 to upgrade the Warren County High School system.

Officials noted that other schools also need similar improvements and that a school security grant is helping fund work at Skyline High School.

The proposed division-wide telephone system replacement would cost approximately $400,000.

A technology representative explained that the current system remains operational but is no longer supported in a way that ensures reliable long-term service.

“Our phone system works,” he said. “But it is past end of life. Past end of service.”

When problems occur, the division sometimes must obtain assistance from outside engineers because of the system’s age.

Officials said a major failure could affect school communications and emergency response.

Another proposed safety improvement involves electronic building access controls.

The $135,000 request would provide card readers throughout the school division, replacing some traditional key-based access.

Officials explained that they can deactivate electronic cards immediately when an employee leaves or restrict access.

Traditional keys can be duplicated, lost, or never returned, creating ongoing security concerns.

Employee Pay Raises Proposed, But Health Insurance Costs Remain Uncertain

The school division’s human resources presentation focused on employee recruitment, retention, compensation, and health insurance.

Officials proposed a total 4% salary adjustment for the 2027–28 fiscal year.

The presentation emphasized that the request includes regular salary step advancement. It is not a 4% raise on top of a step increase.

The division is also working on a multiyear effort to modernize salary scales.

The plan calls for reviewing job classifications, simplifying position titles, standardizing salary structures, and making salary-step increases more consistent.

Some existing pay scales contain 17 steps, while others contain 20 or 30. The goal is to establish more consistent 20- or 30-step structures.

Officials also want to establish approximately 2% increases between steps while retaining existing higher percentages where applicable.

This school year, the division adjusted compensation scales for instructional assistants, bus drivers, nurses, and Virginia High School League head coaches.

The changes appear to have helped address certain staffing shortages.

“We have zero instructional assistant openings, which is great,” the human resources presenter reported.

The division is also fully staffed with school nurses, and officials said they have received additional qualified applicants interested in substitute nursing opportunities.

For fiscal year 2028, the division plans additional salary reviews involving school operations associates, administrators, speech therapists, social workers, and assistant athletic coaches.

The division plans a more comprehensive review of teacher compensation in a later budget year because so many employees are affected.

Officials estimate that approximately 560 employees are covered by teacher-related salary scales.

The financial challenge is significant.

School officials said about $1.94 million in state incentive funding depends on meeting employee compensation requirements.

Failing to provide the necessary salary adjustments could jeopardize that funding.

Officials emphasized that any final compensation plan must account for both employee needs and the financial consequences of not meeting state funding conditions.

Substitute Teacher Pay Falls Behind Neighboring Counties

The division also wants to improve pay for substitute teachers.

After bringing substitute staffing back under direct school division management, Warren County now has 146 substitutes on its payroll.

Officials said the arrangement is working well, but the county especially needs more substitutes on Mondays and Fridays.

The proposed budget includes a 3% cost-of-living increase for substitutes.

Warren County currently pays regular substitute teachers approximately $123 per day.

Neighboring divisions offer different rates based on qualifications, with some paying more for substitute teachers with college degrees.

Long-term substitute pay is an even greater concern.

Warren County pays approximately $146 per day for long-term substitutes.

The presentation compared that with Shenandoah County, where a qualified long-term substitute may earn $225 per day.

Over a 20-day assignment, that amounts to $4,500 in Shenandoah County compared with $2,920 in Warren County.

School officials said the pay difference makes it harder to recruit people willing to accept long-term assignments, especially when teachers are absent for extended medical leave or when regular positions remain vacant.

The division reported having nine long-term substitutes working at the time of the presentation.

Officials said they will continue reviewing compensation to determine how Warren County can remain competitive with surrounding school systems.

Health Insurance Increase Could Cost Another $1.9 Million

Employee health insurance may be one of the most unpredictable parts of the coming budget.

The division saw a 23.7% increase in health insurance costs this year, far exceeding its initial expectations.

Officials said medical claims, employee participation, prescription drug costs, and coverage changes have all contributed to rising expenses.

For budget planning, the division is using a preliminary estimate of another 22% increase.

If that projection holds, the school system could face about $1.9 million in additional health insurance expenses.

The employer’s total annual health insurance cost could rise to more than $10.2 million.

Officials emphasized that actual renewal figures have not yet been determined.

One alternative under consideration is a self-insured health plan.

Under a traditional fully insured arrangement, the school division would pay premiums; under a self-insured plan, it would assume responsibility for medical claims and work with an administrator to manage benefits and payments.

Such a system could offer greater flexibility and let the division benefit when claims are lower than projected.

However, it could also expose the division to financial risk if claims exceed expectations.

School officials said they would need a reserve or funding commitment of approximately $1.2 million to protect against unexpected costs.

The division would not proceed with self-insurance without financial safeguards.

Officials also discussed whether combining the county government’s health insurance program with the school division’s coverage might provide savings.

That possibility remains complicated by differences in renewal dates, employee claims experience, and existing insurance arrangements.

The division plans to seek new proposals for self-insurance options and compare them with the cost of continuing its current health plan.

School Board Member Calls for Dedicated Maintenance Funding

One of the meeting’s strongest warnings came from School Board member George Cline, who questioned how the division can protect its facilities when routine maintenance needs are repeatedly delayed.

Cline described problems at the Blue Ridge Technical Center, including water intrusion, deteriorating exterior panels, and cracks in portions of the building.

He said a concrete slab near the building slopes toward the structure, directing rainwater toward the school rather than away from it.

The resulting water problems have affected an area near the electrical classroom.

Maintenance personnel have taken steps to limit water entering the room, but Cline said the underlying drainage issue remains.

He also described deteriorating metal panels around windows, visible exterior cracks, and a structural wall crack that is being monitored.

In addition, Cline raised concerns about leaking roofs throughout the school system.

He questioned how much money the division spends repeatedly replacing water-damaged ceiling tiles after rainfall.

“Why we don’t have maintenance money is beyond me,” Cline said.

He estimated that some of the water-related repairs at the technical center could cost approximately $20,000.

Cline argued that these types of projects should be handled through a properly funded maintenance budget rather than waiting until they become major capital improvement requests.

He said maintenance employees often know what needs repair but lack the resources to do it.

“I’ve never in my life seen any business run this way,” Cline said.

He also pointed to long-standing concerns at E. Wilson Morrison Elementary School, where aging infrastructure has been part of the broader discussion about the building’s future.

The district’s capital improvement presentation did not include a specific E. Wilson Morrison project because officials said they are waiting to decide how to proceed with the facility.

Cline emphasized that deferred maintenance does not eliminate costs. It often creates larger problems that eventually require more expensive repairs.

“We’ve got probably close to $250 million worth of buildings that we’ve got to maintain,” he said.

For Cline, the issue is not simply whether the division can afford another major project. The question is whether the school system can keep postponing repairs to facilities it already owns.

Career and Technical Education Programs Turning Away Interested Students

Cline also raised concerns about limited program capacity at the Blue Ridge Technical Center.

He presented enrollment request figures showing that several popular programs have far more interested students than available classroom spaces.

Culinary Arts received 209 course requests, but only 32 spaces were available.

Automotive Technology I received 133 requests for 32 spaces.

Welding I received 120 requests for 40 spaces.

Introduction to Engineering and Design received 144 requests for 60 spaces.

Introduction to Health and Medical Sciences received 196 requests for 72 spaces.

Electrical I received 134 requests for 68 spaces, while Electrical II received 44 requests for 20 spaces.

Other programs with substantial demand included Carpentry I (117 requests for 64 spaces), Biomedical Science (99 requests for 60 spaces), and Criminal Justice (94 requests for 40 spaces).

The figures represent course requests rather than a verified count of individual students, but they illustrate the substantial gap between demand and program capacity.

Cline was particularly concerned about the number of students who couldn’t take trades-related courses that could prepare them for employment after graduation.

Discussing the culinary program, he emphasized the difference between requests and available seats.

“209 requests. We took 32. 32 out of 209,” he said.

He argued that Warren County should develop a long-term vision for career and technical education rather than continuing to work within facilities that cannot meet existing demand.

Cline also discussed expanding training opportunities for students interested in construction trades, welding, automotive repair, agriculture, and other technical careers.

He suggested a future technical education complex could include agricultural facilities, such as a barn and space for livestock programs.

The discussion reflected concern that students who prefer hands-on education may struggle to find programs that match their interests.

Wright agreed that expanding career and technical education is important.

He explained that students in those programs are often highly engaged because they chose subjects connected to the careers they want to pursue.

He also shared experience from another school division where students who couldn’t enroll in their desired technical programs were more likely to become disengaged from school.

As an initial step, Wright outlined a proposed $50,000 operating expenditure to provide transportation and access to career training at Laurel Ridge Community College.

The proposal would initially support approximately 10 students.

The school system is also exploring adding an emergency medical technician and firefighter training program during the 2027–28 school year.

While those proposals could provide additional opportunities, Cline urged officials to look beyond short-term solutions and develop a broader plan to expand technical education.

He questioned whether Warren County could continue meeting workforce needs without increasing access to these programs.

Wilson Morrison Remains an Unresolved Facility Question

During the capital improvement discussion, School Board members questioned why E. Wilson Morrison Elementary School was not included among the projects presented.

School administrators explained that the district is waiting for further direction on the building’s future.

Without a final decision about what work will be undertaken, officials said it is difficult to assign a reliable capital improvement cost.

The discussion also included updates on other school facilities.

Officials reported that roof projects at Hilda J. Barbour Elementary School and the Skyline Middle School auxiliary building had been completed.

The replacement chiller at Hilda J. Barbour was expected to arrive in November, although officials noted that testing cooling equipment in cold weather can be challenging.

The school division was continuing to use a rental chiller while awaiting completion of that project.

Members also raised concerns about rising heating fuel and transportation costs.

School officials acknowledged that fuel prices affect both building operations and transportation, adding another uncertainty to next year’s budget.

School Debt and Tax Revenue Questions Lead to Tense Exchange

Financial disagreements between the School Board and Board of Supervisors surfaced late in the meeting when officials discussed a possible additional 1% local sales tax for school capital improvements.

Officials have previously discussed the idea as a way to provide a dedicated revenue source for major school construction and renovation projects.

School officials said they had been monitoring how neighboring counties approached the issue and how residents responded to proposals for additional sales taxes.

But School Board member Melanie Salins questioned whether new tax revenue would actually be used for its stated purpose.

She raised concerns about how existing meals tax revenues are allocated and disputed school-related debt figures that she believes include obligations tied to Leach Run Parkway.

“How do we know that if we bring in another 1 percent, that’s supposed to be for the schools that it actually comes to the schools and isn’t diverted to help pay off existing county debt?” Salins asked.

A supervisor responded that the referendum process would define how the revenue is used.

“That would be spelled out in the referendum,” he said.

The discussion then turned to the county’s outstanding debt and which obligations should be considered school-related.

A supervisor said the county has about $100 million in debt service obligations, much of which is tied to previous school construction.

Salins maintained that certain figures presented by the county’s financial adviser, Davenport, improperly associate Leach Run Parkway debt with school construction.

She said she had repeatedly requested financial documents and an opportunity to discuss the issue with county officials.

“I’ve sent countless emails with very specific questions,” Salins said, adding that she had not received satisfactory answers.

She also questioned why the county borrowed amounts she believes exceeded actual school construction costs and asked where any funding differences went.

The meeting did not resolve those questions.

The statements about disputed debt are allegations and questions raised by Salins; the meeting did not establish that the county’s financial records are incorrect or that funds were used improperly.

Officials discussed involving Davenport to clarify the financial records and determine how to classify the debt.

Salins pressed for a specific meeting date rather than leaving the matter unresolved.

“So could we please schedule that like right now while we’re here having this meeting publicly?” she asked.

The boards discussed a joint work session tentatively scheduled for February 9, 2027, to address the debt and tax revenue questions alongside the developing fiscal year 2028 budget.

Salins emphasized that the discussion should have enough time and not be cut short by another scheduled meeting.

The exchange demonstrated that the upcoming budget negotiations will involve more than determining how much money schools need.

The two governing bodies also face unresolved questions about financial reporting, debt responsibilities, and how public revenues should be allocated.

Budget Process Continues Into 2027

The October 21 meeting aimed to set priorities before the school division begins making more detailed budget decisions.

Officials discussed a tentative schedule under which Wright would present his proposed superintendent’s budget to the School Board in early February.

Officials tentatively planned a joint meeting with supervisors for February 9, giving both boards an opportunity to review the proposed spending plan and discuss outstanding financial questions.

The school division’s initial presentation did not include a final request for increased county operating funding.

Instead, the preliminary revenue forecast assumed the county’s contribution would remain unchanged, allowing officials to see how other projected revenues would affect the budget before making additional requests.

That approach made the financial challenge clear.

The division is anticipating only about $413,000 in additional operating revenue under its initial projections, while a single major cost increase, such as health insurance, could exceed $1.9 million.

At the same time, the district is proposing employee compensation adjustments, replacing aging transportation equipment, addressing building maintenance concerns, and seeking additional instructional staff.

The capital improvement plan alone contains more than $3 million in requests.

Some of the most significant long-term questions, including the future of E. Wilson Morrison Elementary School and expansion of the Blue Ridge Technical Center, still lack finalized project costs.

For supervisors, the challenge will be determining which requests the county can fund within its broader financial responsibilities.

For School Board members, the challenge is balancing immediate educational needs against repairs and improvements that have already been delayed.

The meeting also highlighted a concern that goes beyond the next fiscal year: whether Warren County is planning far enough ahead to avoid repeating the same financial problems.

School officials said aging school buses will require a multiyear replacement schedule. Technology systems will need predictable upgrades. School facilities will require ongoing maintenance, and employee compensation must remain competitive if the district expects to retain qualified workers.

Career and technical education programs also face growing demand that small annual adjustments alone cannot address.

Cline’s comments about the technical center and building maintenance captured that broader concern.

He argued that the division cannot wait for existing problems to become emergencies before deciding how to address them.

For now, no final budget decisions have been made.

But the October 21 discussion offered an early look at the choices ahead: how to support student achievement, keep school buildings safe and functional, retain employees, and expand opportunities while state funding remains closely tied to a declining student population.

The answers will depend on the coming months of budget negotiations between the School Board and the Board of Supervisors—and whether the two boards can find common ground on the remaining unresolved financial issues.

Watch the October 21, 2026 Joint Meeting of the Warren County School Board and Warren County Board of Supervisors