Scioto County Commissioners Fire Economic Development Chief Robert Horton After Indictments; Deal With Fallout
Last week was a tumultuous one for the commission
For transparency, I would like to inform the reader that I worked as an intern at the Southern Ohio Port Authority (SOPA) in 2017. I was hired in March of that year to conduct a commercial building inventory of downtown Portsmouth and completed the project that autumn. I have been playing a bit of catch-up with this story, which is complex, but this deeper-dive hopefully helps the public understand some of what is unfolding now.
In a meeting the morning of Feb. 18, the Scioto County Commissioners voted to fire Robert Horton, county development director, after a special session.
Following a brief opening statement the commissioners entered an executive session, which is closed to the public. Upon returning all three commissioners voted to dismiss the embattled Horton, who had been under scrutiny since a criminal investigation by the Ohio Auditor of State’s office became public in August 2024, when search warrants were executed.
The firing followed indictments by the Special Investigations Unit (SIU) of the Ohio Auditor’s office. A press release stated, “SIU launched its investigation after receiving a complaint alleging a potential unlawful interest in a public contract between the Southern Ohio Port Authority and an out-of-state company for a building at the Southern Ohio Aeronautical Regional Business Park, adjacent to the Greater Portsmouth Regional Airport.”
Horton is accused of 14 felony counts and a misdemeanor, including a first-degree felony for allegedly engaging in a pattern of corrupt activity. His wife, Lioubov E. Horton, also faces 12 felony counts. The SIU alleges the Hortons and a ring of conspirators engaged in a “kick-back” scheme that involved accepting bribes in exchange for handing out public construction contracts.
The commissioners also scheduled a meeting for Feb. 27 at 10 a.m. to remove Horton as president of SOPA. Under Ohio law, he has the right to challenge his removal in a public hearing. Port authorities in Ohio are used for economic development.
“Mr. Horton is also a member of SOPA,” Commissioner Powell said. “SOPA has different rules and regulations in terms of how they handle things.”
During a commission meeting Feb. 18, local journalist Bill Shope of WNXT Community Corner asked if any commissioner intended to disclose information that might reveal a conflict of interest. Commissioners Powell and Coleman replied no. Commissioner Davis said, “Well, at this point, it’s just about doing what's best for the county.”
In the past, Davis described the investigation into Horton as a “witch hunt” and said it impeded vital economic development. At a Feb. 20 meeting, Davis said his decision to reinstate Horton in October 2024, after Commissioners Coleman and Powell suspended him in the wake of the investigation, was to avoid serious financial consequences that could have placed the county and SOPA in financial and legal jeopardy.
“And I will tell you that by a sliver, I mean a sliver of a hair, was all of that avoided,” Davis said. “That’s factual.”
During the same meeting, Coleman explained her decision to reinstate Horton. She said that at a 2023 Valentine's Day dinner hosted by the local Republican party, she learned of potential conflicts of interest involving O'Steel, a company then headed by Lorinda Davis (commissioner Davis’ wife) and Ms. Horton and involved with development at SOAR, though the extent of which remains murky. Coleman said she discussed the matter with Davis and later with County Prosecutor Shane Tieman. Coleman said Tieman advised Davis he would have to abstain from voting on economic and business matters related to the SOAR site development. According to Coleman, Davis later informed her Ms. Davis had withdrawn from the business, and Tieman subsequently advised her that Davis would not have to abstain from votes related to the airport.
Coleman said she was “flabbergasted” by the revelation of an investigation in August.
As of Feb. 23 2025, O’Steel Building Systems of Ohio, LLC remains listed as an active business according to the Ohio Secretary of State’s website, with Ms. Davis listed as the only representative.
Powell said that while he understood the concerns of the other commissioners, he maintained a different position. Since the investigation became public in August 2024, Powell has been adamant that Horton should have been removed from his duties until the legal investigation concluded. He was the only commissioner to vote against reinstating Horton after the initial suspension.
“In my world, if there’s an allegation, not even a criminal investigation, there’s an allegation of fraud, abuse and neglect, you just tell [that person] to go home and [they] don’t come back until it’s over,” Powell said. “You don’t put someone back in a situation where they can keep doing the same thing.”
Timeline of Events
September 2017
After a contentious board meeting, multiple staff and board members of SOPA resigned, including director Jason Kester. The following month Robert Horton was hired by the Scioto County Commissioners to lead economic development in the county, and was appointed to SOPA’s board as its president. Bud Sayre, then the chair of SOPA’s board, resigned and accused Davis of wanting to create a board of “political loyalist”.
2021
The indictments allege that in March 2021, Horton accepted a bribe. In May 2021, RPL Consulting, management, sales LLC was formed by Horton's wife, Lioubov E. Horton. The SIU’s indictments allege this is a shell company used to accept bribe money under the guise of a sales commission paid to Ms. Horton.
2022
O’Steel Building Systems of Ohio, LLC was filed as a business with the Ohio Secretary of State’s office with Lorinda Davis, Commissioner Davis’ wife, listed as the representative.
2023
According to Coleman, she was informed of potential conflicts regarding Davis and his family’s involvement in O’Steel, but after Davis’ wife withdrew from ownership of the company, she considered the matter resolved.
2024
In August, the State Auditor’s office executed a search warrant at the county’s economic development offices, revealing a criminal investigation. Horton was placed on administrative leave. Powell and Coleman, the only two commissioners available because Davis was on vacation, made the decision to suspend Horton with pay until more could be learned about the investigation. Horton was later returned to work with votes from Coleman and Davis, with Powell voting against the motion.
2025
Indictments were revealed on Valentines Day, indicating Horton and his wife in a public corruption scheme. The commission voted to terminate Horton in a special session. On Feb. 20th the commission fielded questions regarding their handling of the matter over the past six months, and Coleman and Davis defended their decision to return Horton back to the county’s development office.