District Ignores Possible Campaign Violations Of Incumbents While Unfairly Accusing Opponent
In the background of all the whining and complaining from the Talbot County School Board President Emily Jackson, at the monthly board meeting on Wednesday, September 9th, you may have heard a small, imaginary violin playing.
You may also have realized that Ms. Jackson, who seems to be an intelligent woman, missed the point of recent questions and criticism regarding her 8-year tenure as a member of the Board of Education and President of the body.
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She claimed it was all "personal" when members of the public questioned her role and lack of effectiveness to improve the academic performance and achievement of children in the Talbot County Public Schools. She implied that she and the rest of the board members have no influence over the system's schools.
I think she missed the point on at least two counts.
First, she may not remember that she is an elected official and as such, has promised to make schools better for all Talbot County students and help students get the best education possible. Based on test scores from the State, that has not happened. In fact, in some subjects achievement has dipped. Here are two recent articles about that:
Time For New School Board Leadership In Talbot County - The Easton Gazette
“Let’s Speak Openly and Honestly About Our Scores” - The Easton Gazette
Accountability is in the job description Emily. If the Board isn't accountable and can't make achievement better, then why bother to have one at all?
Emily doesn't want you to talk about accountability. She wants to give pretty speeches at the Talbot County Public Schools Opening Day, pose for pictures for her brochures with staff at schools (some without their permission), and pontificate in school board meetings about people who dare to question her performance as President of the Talbot County School Board. Her husband, Phil Jackson, Democrat Central Committee Chairman, is organizing their membership and supporters who lie about Mike Butler through letters to local publications. Is Phil protecting his wife.
Meanwhile, Emily Jackson wants to play victim. She wants to deflect blame for district dysfunction elsewhere using the same tired excuses (money, student population, etc.) that have been in play forever. Cue the tears and whining.
The truth is she doesn't want to have a formidable opponent in the upcoming election. In fact, she might be using all her influence to make the playing field uneven for her opponent, former teacher and lifetime Talbot County resident Mike Butler. You can almost smell her fear.
Mike Butler, a well-respected and beloved former teacher in the Talbot County Public Schools, is everything Emily is not. He is positive, friendly, plain spoken and animated. As a friend of mine said, "He's like that coach who gives energy to everyone he meets." He approaches problems with a genuine, desire to ask questions, learn more, and employ common sense to do what is right for students, teachers and parents. His experience as a teacher is invaluable. It's something Emily doesn't have.
butler targeted by tcps administration
Mike retired from teaching a few years ago, but, knowing that TCPS needed good substitute teachers, signed up to sub. As a former teacher, that is something I would not do because it is really tough to be a substitute. Mike did it with great enthusiasm. The schools welcomed him with open arms. From all accounts, he did a great job.
The Talbot County Public Schools were appreciative until he decided to run for Board of Education in District 4, Emily Jackson's district.
Everything suddenly changed.
Last Spring, Mike got a call from Dr. Zulieka Horsey, Assistant Superintendent of Administrative Services for the Talbot County Public Schools. Basically, she is HR for the district.
While Butler was subbing, Horsey called and told him to meet with her. In that meeting, she said she had "heard rumors" that he was campaigning while substituting. Mike was baffled. He said the only thing he did was answer "yes" when people came to him and asked if he was running. What was he supposed to do, plead the 5th? Lie?
He was never given any specifics about the "complaints."
Then Horsey replied in an email, " I need to consult with our counsel regarding the information I received about campaigning at schools. I will follow up before more sub opportunities are provided." Butler never heard from her before the end of last school year, but when he went to sign up to sub on certain days, he was locked out of the substitute scheduling system.
To date, he still cannot substitute in TCPS.
As for the follow up, it apparently takes a long time to get an answer from Dr. Horsey about the policy, even though it is stated quite clearly in the Talbot County Public School policies.
However, it only takes a minute to deny Butler an opportunity to sub.
County policy does not preclude a candidate from working for the school system. The only policy which applies is that once a person is elected, they cannot work for the system:
That conversation with Horsey was five months ago. It seems large federal investigations take less time than looking into allegations of campaigning while on school property in the Talbot County Public Schools.
So, how did Horsey decide Butler was allegedly campaigning at schools? Was answering people who asked about him running a violation? Doesn't seem right especially considering the actions of other school board candidates.
They are actually campaigning in TCPS buildings and using school students in their ads; that is blatantly not allowed by Talbot Schools policy.
Examples of this "campaigning" that violates TCPS policy is contained in these ads below where children in a classroom are pictured in social media campaign posts for Emily Jackson and Amy Dodson. These pictures were pulled from Emily Jackson's and Amy Dodson's Facebook pages during current and prior campaigns. All of the posts are still available on Jackson's and Dodson's Facebook pages as of this summer.
AD NUMBER 1 - For EMILY JACKSON - This is a "pinned" ad meaning it is still at the top of the 2026 campaign page. The faces of the children are clearly visible in the original post, the Easton Gazette hid them for privacy purposes:
AD Number 2: Here is a picture where school children hold campaign signs for Emily Jackson in front of a Talbot County school building. The faces of the children are clearly visible in the original post; the Easton Gazette hid them for privacy purposes:
AD NUMBER 3 for AMY DODSON from THIS YEAR. These ads include TCPS students in a TCPS classroom. The faces of the children were clearly visible in the original posts, the Easton Gazette hid them for privacy purposes:
We consulted with legal experts who say those ads violate Talbot County Public Schools and Maryland policy.
But, according to the Talbot County School Administration it's okay for two sitting board members to violate policy by campaigning in schools and using children and school classrooms in those campaigns. What's the old saying about rules for some but not all?
All three of those ads are against the policies of every school system in Maryland including Talbot. Candidates are not allowed to:
- Use school property, school images, or students for political activity
- Take photos of students on school grounds for campaign purposes
- Imply student or school endorsement of a candidate
specific talbot county policies regarding campaigning
Under TCPS Policy, a candidate may not use images or video of TCPS students taken on school property or during school activities in campaign advertising. This is because such images constitute political materials created using school resources, which the policy prohibits.
A campaign photo or video taken on school grounds is considered “displaying political materials on school district property,” which is prohibited. Using students in campaign ads—especially posed, identifiable, or holding campaign signs—constitutes political activity involving minors on school property, which the policy forbids.
Oops. You would think two sitting school board members would know that.
These policies derive from the Public Ethics Law as well and should be enforced locally. We had each of the pictures above analyzed by legal experts. They are all a violation. Here are those evaluations:
Ad Number 1 shows two identifiable young children seated at a classroom table with the candidate. Under TCPS Policy:
- Students may not be used in political campaign materials in ways that imply endorsement or association with a candidate.
- Students cannot be photographed for campaign purposes on school property.
- Students cannot be depicted in campaign materials created using school resources.
This image is a campaign ad (“Vote for Emily Jackson!”), and the children are clearly part of the visual message. That is a direct violation.
Photo Ads #1 and 3 are also taken inside a TCPS classroom — visible desks, bulletin boards, instructional materials, and learning centers. Ad #2 is using TCPS property as a backdrop.
Policy also prohibits:
- Using school facilities for campaign activity
- Filming or photographing campaign content inside TCPS buildings
- Any campaign material that uses TCPS property as a backdrop
All three of these ads are prohibited.
Ads 2 and 3 on the campaign pages additionally violate TCPS Policy on multiple grounds.
Even without text, the visuals imply:
- The candidate is interacting with students
- The students are part of the candidate’s message
- The classroom environment supports the candidate’s campaign narrative
All of the images appear to be taken with:
- School equipment (camera or phone used during school hours) OR
- School access (candidate inside a classroom with students)
TCPS policy bars candidates from using any school resources — including access to students, classrooms, or instructional time — for campaign purposes.
All Three of These Ads Appear To Have Potential FERPA Implications (Violation)
FERPA prohibits using non‑public, identifiable student images for non‑educational purposes without parental consent.
- Shows identifiable children
- Was taken in a classroom
- Was used for a political campaign
- Was not publicly released by TCPS as a general-use image
All of these campaign ads violate TCPS Policy, Maryland ethics law, and possibly FERPA.
If a parent who did not give permission saw their child's picture used this way, they could sue TCPS for a FERPA violation. Even if permission was given by parents, the picture still violates policy.
Did the administration and lawyer for the Talbot County Public Schools meet with these two incumbents and inform them of their ad violations and demand they remove them? Will the candidates be forced to remove these materials from ANY of their campaign materials, electronic or hard copy? Will there be consequences?
I guess the school system is too busy targeting Mike Butler because he was answering people's questions about running for school board while he was substitute teaching.
We can't be sure if these candidates knew they were breaking policy. They are both experienced candidates so we think they should know these campaign pictures and others on written materials are wrong. What we CAN be sure of is the treatment of some candidates by TCPS is uneven at best. The question is "why?"
Does a high ranking school tcps official have a bias for the re-election of the current board president?
As for Dr. Horsey, who is "investigating" whether Mr. Butler was campaigning and whether he or not may still substitute, she may have a bias towards Ms. Jackson. Horsey, according to our research, was hired in 2019 to be an Assistant Principal at Easton High School. She left the district and then returned in 2022, around the same time Jackson was campaigning to be elected to her second term.
This screen shot from Jackson's campaign site was taken earlier this year (2026). It is a version of Jackson's campaign site created for her re-election campaign in 2022, but left active and available throughout this past spring and summer for anyone who visited her website:
Here is a close up of that endorsement:
The name of the endorser, "Z. Horsey" is listed as a "Talbot County resident, TCPS parent." Unless there are multiple "Z Horseys" running around in Talbot County, it is reasonable to assume that this is the current Assistant Superintendent. Here is the article about her being hired in 2022, the same year as Jackson's first re-election campaign.
She was later given a promotion.
Was this a coincidence? Probably. We are not saying that there is a "quid pro quo" for the endorsement. However, the effect on the election of having a TCPS administrator endorsing a school board candidate even four years later is difficult to assess. Anyone who visited Jackson's campaign up until late this summer would have assumed Dr. Horsey supported Jackson. Even after the endorsement was removed, people would remember. We did.
Dr. Horsey has a right to endorse a candidate. Does that necessarily mean she is biased? No. But that endorsement should preclude her enacting any job action against the candidate's opponent. Maybe she should recuse herself from that action?
It is a conflict of interest since Horsey is in charge of personnel for TCPS and can decide who gets to substitute teach. She can remove Mike Butler, Jackson's opponent, from the sub list. According to sources, she hasn't allowed him back as a sub as recently as September 18. Almost a month into the school year.
The endorsement brings a new perspective to Horsey's recent interactions with Mr. Butler. Horsey emailed Butler last week to arrange a meeting with him again regarding substitute teaching. She stated that she wanted to explain "the process and share the policy" with him. Mr. Butler had requested an email explanation from Dr. Horsey which would accomplish the same goal but Horsey doesn't seem to want to put anything in writing. Here is a copy of that recent email exchange:
In my years in the school system and public agencies, I've learned that administrators are loathe to put anything in writing, particularly if they know they are wrong. Whether this is the case here is hard to tell.
Horsey indicates that the "exchange" with Butler last year was "very pleasant, not accusatory."
It seems to us that when you meet with someone and share anonymous, vague, allegations of possible campaign violations and tell someone they are losing a substitute teaching opportunity, that is accusatory and not at all pleasant. Mr. Butler was given no details about the accusations of campaigning while he was working.
How will that play out? We are not sure but Butler got an email September 17, saying that Horsey would have an answer for him about policy, etc. on Monday. Seems to take a long time for TCPS to explain a fairly simple policy. As we previously said, it's been five months and school has started.
Other people inside the system were also actively campaigning for Jackson.
In one instance, a private citizen notified us that they had made a social media post critical of Jackson. During one workday, a school employee who works at the Talbot County Education Center contacted that citizen and demanded that the post critical of Jackson should be immediately taken down.
It wasn't. However, that request by a school district employee was not only unethical but a violation of a policy of employees not doing political campaigning during school hours. The school system is supposed to remain impartial during elections. The demand would warrant, at the very least, a warning and letter of reprimand from system administration to that employee. We know the name of this employee but will not disclose it for their privacy.
Of course, whatever the decisions are about any of the violations of incumbent board members or district employees, they will be made by top administrators of TCPS and the school board's lawyer. We wouldn't recommend you hold your breath waiting for any real consequences for violations. We asked the TCPS Superintendent questions about these issues:
The Easton Gazette sent the following email to Superintendent of Schools Sharon Pepukayi last week;
I'm writing this in my role as a writer for the Easton Gazette.
I am writing to seek clarification on school board policy, COMAR, and related regulations regarding political neutrality within Talbot County Public Schools (TCPS). As a former TCPS employee, my understanding has always been that staff and board members must remain impartial and non-partisan while performing their official duties.
Recent reports have raised concerns that these boundaries may be compromised, specifically regarding potential active campaign support for Emily Jackson. Before taking any further steps, I wanted to reach out to you directly to clarify the policy on the following points:
1. Are TCPS employees permitted to campaign for candidates for county positions while at work or using their official titles (e.g., contacting a private citizen to request the removal of social media posts critical of a candidate or the sitting school board President)?
2. Are candidates for political office allowed to feature TCPS students or facilities in campaign advertisements or on social media campaign pages?
3. Are non-elected candidates for office prohibited from working within the school system, such as in a substitute teacher role? If so, could you please share the specific policy or law?
4. Is it permissible for school board members to make campaign statements during official school board meetings? What is the consequence for such an action? Are board members given guidelines on this practice when they are seated?
Thank you for your time and guidance on these matters. I hope the start of the school year is going well, and I look forward to catching up soon.
Looking forward to hearing from you.
Best regards,
Jan Greenhawk
Writer/Editor Easton Gazette
As of today (September 18), we have received no response. We were promised an answer last week.
the bottom line
The question for citizens is whether or not decisions by the Talbot County Public Schools are intended to interfere with the 2026 school board election as well as stifle, demean and intimidate Mike Butler and work to re-elect sitting Board President, Emily Jackson.
They may have miscalculated. Mike Butler does not easily back down from a fight. As a former athlete, teacher and coach, he knows how to get through tough times with character, grit, and a positive attitude.
Some might say that this is just "politics as usual." In our opinion, it's not. It's the Talbot County Public Schools staff and administrators inserting themselves into politics to influence the results of an election. It's a school board President potentially using her power, privilege, and position to retain her office or a school system official tipping the scales in favor of one candidate over another. In general, it's called "misuse of official authority."
Maryland Public Ethics Law — GP §5‑506 (Misuse of prestige of office)
This law prohibits any public official (including school employees, BOE members, or candidates who hold public office) from using school resources, access, or authority to influence an election.
Examples of prohibited conduct:
- Using photos taken by school staff or with school equipment.
- Using images obtained through official duties (teacher, BOE member, volunteer).
- Filming inside schools using access not available to the general public.
This is treated as misuse of official authority.
We would hate to think that this applies here. We also wonder WHY the TCPS Administration might favor Jackson's re-election. What's in it for them?
When the former President of the School Board, Susan Delean Botkin, left her position, we were hopeful that Jackson would bring more knowledge, common sense and accountability to the county schools. While she began well, it didn't take long for changes to happen in how she handles issues. Now, she seems more interested in rubber stamping school administration decisions, never holding them accountable, and perpetually retaining her position.
And she considers calls for accountability in her job to be "personal attacks." Nothing worse than saying "that's not our job," Emily. Read Maryland Education Article Title 4,
It is your job and your responsibility to voters.
The core powers of county boards come from Maryland Education Article Title 4, which defines what boards can and cannot do. Below is a precise, statute‑grounded breakdown of their legal authority:
1.Hire, evaluate, and remove the Superintendent
2. Set local education policy
3.Employ personnel and set local employment policies
4.Approve and oversee the school system budget
5.Manage school property and facilities
6.Adopt curriculum materials (within state standards)
7.Hear appeals and decide local disputes
8.Enter contracts and manage procurement
Jackson's post is contradictory, first saying that the Board has no power over district employees then stating their job is accountability. Then Jackson whines at a public board meeting because she views being held accountable as "personal attacks."
Make up your mind, Emily. Which is it? You can't have accountability without accepting responsibility and criticism. Let's not forget that it was you and a majority of your colleagues on the school board who signed a contract with the current Superintendent, Sharon Pepukayi, for three more years. If you have that power, you have the power over what goes on in the district.
If the school board has no positive impact on student achievement in the Talbot Schools, if you don't want to be held accountable, and it you want to shield yourself from constructive criticism, Emily, then what is the point of you being school board president or having a school board at all?
The only way an elected school board will matter again in Talbot County, is if we elect people who truly want to ask questions of administration, demand accountability of staff, and help students achieve.
It's time for a change.
