#3 of 5 | Montrose Classical Academy: Third-Party Operators in Public Education and The Rise of EMOs and ESPs
Originally published in June 2025, this installment was updated in February 2026.
When Montrose Classical Academy (MCA) pursued approval to open in Montrose, a community in Western Colorado, a lesser-known but critical detail drew attention: the proposed involvement of Minga Education Group (MEG) as the employer of all MCA staff. This outsourcing arrangement raised important questions about governance, accountability, and the difference between two types of third-party operators: Education Management Organizations (EMOs) and Education Service Providers (ESPs). (Montrose Classical Academy was approved by the Montrose County School Board in September of 2025. See local coverage by Montrose Press here.)
Understanding these distinctions is essential to assessing any charter school’s potential impact on a community. In this post, we break down the key differences between EMOs and ESPs, introduce real examples in Colorado, and explain why these models matter.
What Are EMOs and ESPs?
Charter schools are often framed as independently operated public schools. “Autonomy” is a key word you hear often in charter circles. As a charter school parent, I know this through first-hand experience, as well as what I observe in reporting, public meetings, etc. But when they contract out core functions, that independence can become murky - or perceived to be murky by the community. Here’s how the two main types of operators differ:
Education Management Organization (EMO):
Runs the school’s full operation: academics, staffing, finances, etc.
Often wields significant authority over daily decisions.
Sometimes even holds the charter directly.
Typically for-profit, though nonprofit EMOs exist.
Education Service Provider (ESP):
Provides specific services (e.g., payroll, HR, curriculum design).
The school board retains operational and governance control.
Can be nonprofit or for-profit.
Less centralized authority than EMOs.
The difference often comes down to control and governance. In ESP relationships, the charter school board should remain in charge. But, in practice, that line is often blurry, especially when you look at the relationships among influencers and decisions makers. On paper, things look clean and technically separate. Human behavior adds a murky layer to what is supposed to be clear and transparent. Little Sis, established under the umbrella of the Public Accountability Initiative, a 501 c(3) founded in 2008, provides public access to reams of online information and documentation about organizations. Education ReEnvisioned BOCES and the Montrose County School District are two of many Colorado organizations are included in their massive database.
Why It Matters: Governance, Transparency, and Oversight
When a third-party provider becomes the employer of all school staff, including the principal, it introduces a new layer of complexity:
Who sets the vision for the school?
Who is responsible for performance, hiring, or termination?
Who do employees turn to when issues arise?
The MCA application states that Minga Education Group will be the direct employer of all staff. This shifts employment and HR responsibilities away from the charter board. MEG’s CEO, Andy Franko, has roots in Colorado Springs District 49 and Education ReEnvisioned BOCES (ERBOCES), both known for experimenting with charter and online models.
MEG describes itself as an ESP, not an EMO. Yet its role in staffing, HR, and financial services raises valid questions for the community about who is truly in charge—especially when the school board must rely on a vendor for core functions.
Relationships matter. What is written on paper is black and white. Relationships introduce layers of gray.
Examples in Colorado: Who Uses EMOs and ESPs?
The following examples illustrate the spectrum of third-party involvement in Colorado charter schools:
EMOs (High Control)
National Heritage Academies (NHA):
Capstone Academy (Commerce City)
Foundations Academy (Brighton)
Landmark Academy at Reunion (Commerce City)
Mountain View Academy (Colorado Springs)
Sky Ranch Academy (Watkins)
Stride, Inc. (formerly K12 Inc.):
Colorado Preparatory Academy
Pikes Peak Online School
Destinations Career Academy
These EMOs often run schools across multiple states and may receive the majority of a school’s public funding in exchange for operations. ESPs (Limited Scope)
Academica:
Doral Academy Colorado (Jefferson County)
Independence Classical Academy:
Delayed opening, authorized by Elizabeth School District (See Colorado Community Media coverage)
Minga Education Group (MEG):
Listed as service provider in the MCA application
No publicly available website as of May 2025
Incorporated in Colorado as both a nonprofit and a separate service entity
Why the Distinction Is Blurry
While ESPs are supposed to serve, not govern, some take on extensive roles in decision-making. The MCA application describes MEG’s role as limited to services. Yet during the capability interview with MCSD, MEG’s CEO fielded core questions about leadership, hiring, and school setup. That sounds more like management than support.
Moreover, if all employees report to MEG, how much autonomy does the MCA board really have? What happens if MEG and the board disagree? Are there protections for whistleblowers, especially school leaders?
These are the governance gray areas that districts and communities must navigate with care. Frankly, anyone who sincerely claims that relationships don’t impact how decisions are made and what information is shared with whom would benefit from some foundational classes in organizational behavior and communication. That’s why building trust and being as transparent as possible are key to successful organizational ties among schools, districts, and third party organizations.
Coming Up: The Hard Questions Behind the MCA Proposal
In our next post, we’ll explore the specific concerns raised by MCSD board members during MCA’s application process—including transparency, employment structure, grant funding, and what it means when schools choose third-party control over community ownership.
Stay tuned.
Download a PDF with the full series, Charters, Montrose & Minga here.
