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James V Shuls

Florida State University, Institute for Governance and Civics, Faculty Member

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James V. Shuls leads the education liberty branch of the Institute for Governance and Civics at Florida State University. He is an education policy scholar specializing in school choice, education finance, the teaching labor market, and character education. Dr. Shuls has published extensively in peer-reviewed journals, including Educational Researcher, Social Science Quarterly, and the Journal of School Choice. In addition to his research, Dr. Shuls has served as an expert witness in school finance litigation and is co-editing two forthcoming books: Fighting for the Freedom to Learn: Examining America’s Centuries-Old School Choice Movement with Neal McCluskey of the Cato Institute and The Phoenix Principles: Toward the Rebirth of America Education with Jason Bedrick of the Heritage Foundation. He holds a Ph.D. in education policy from the University of Arkansas and began his career as a public-school teacher.

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Papers by James V Shuls

Seeds of Support: How Experience and Exposure Shape Public Opinion on School Choice

Journal of School Choice, 2026

Drawing on policy feedback theory, this study examines whether personal experience with choice op... more Drawing on policy feedback theory, this study examines whether personal experience with choice options and exposure to information about existing programs cultivates broader political backing. Using data from a nationally representative survey (N = 1,447), we find that individuals with direct or familial experience with school choice programs are significantly more likely to support expanding choice programs. A randomized survey experiment demonstrates that framing choice policies as already implemented in real states or countries modestly increases support, varying by the perceived political alignment of the referenced location. These findings suggest that familiarity generates positive feedback, contributing to the momentum behind choice expansion.

Seeds of Support: How Experience and Exposure Shape Public Opinion on School Choice

IGC Working Paper, 2026

The rapid expansion of school choice programs in the United States raises questions about the sou... more The rapid expansion of school choice programs in the United States raises questions about the sources of growing public support. Drawing on policy feedback theory, this study examines whether personal experience with choice options and exposure to information about existing programs cultivate broader political backing. Using data from a nationally representative survey (N=1,447) fielded in September 2025, we find that individuals with direct or familial experience with vouchers, education savings accounts, charter schools, homeschooling, or open enrollment are significantly more likely to support expanding publicly funded school choice. Satisfaction with these experiences further strengthens support. A randomized survey experiment demonstrates that framing choice policies as already implemented in real states or countries modestly increases support, particularly among respondents initially skeptical or ambivalent, with effects varying by the perceived political alignment of the referenced location. These findings suggest that familiarity—through participation or visibility—generates positive policy feedback, contributing to the momentum behind school choice expansion.

THE ROLE OF (SCHOOL) CHOICE IN THE PROMOTION OF HEALTHY LEARNING COMMUNITIES

Journal of Character Education, 2024

Much of the literature on virtues or character development in education focuses on the role of ed... more Much of the literature on virtues or character development in education focuses on the role of educators and parents. Rightfully so; parents and educators must work in common cause in the moral development of children. However, little attention has been given to the role that school systems play in fostering positive relationships and ethical learning communities. By school systems I mean, the formal structures that determine how students are assigned to or choose to be at a particular school. It may well be that structural features of a system lend themselves more or less to creating a healthy educational community where virtues and character formation can take a more prominent form. This article focuses on what it regards as a key but neglected systemic feature of an educational system: whether students are assigned to a school by virtue of their geographical residence or by a family's free choice. This paper examines one key question: would the systemic structures of a public education system built on principles of pluralism, choice, and free association do more to promote healthy learning communities than a system that relies on residential assignment to schools?

More than Knowledge: How civic literacy shapes political tolerance

The Institute for Governance and Civics, 2025

The Institute for Governance and Civics previously conducted two nationally representative survey... more The Institute for Governance and Civics previously conducted two nationally representative surveys that asked respondents eight civic literacy questions as well as how willing they would be to interact with people who hold opposing views. In this report, we analyze the connection between civic literacy and political tolerance. The results show a clear and consistent pattern: people with stronger civic literacy are also more open to engaging with those who see politics differently. What is more, the effects of civic literacy on political tolerance are even greater than the effects from a general education. These results suggest that policymakers should consider further supporting efforts to improve civic literacy. • Civic literacy strongly relates to political tolerance Respondents with high civic literacy scored 16 points higher on our 0-100 tolerance scale than those with low civic literacy. On this scale, 0 means "not willing" to interact with people who hold opposing views, 50 means "prefer not to," and 100 means "willing." In practical terms, this gap reflects a shift from being hesitant to being clearly willing to interact across political lines. • Civic literacy matters more than general education The effect of civic literacy on tolerance is two to five times larger than the effect of general educational attainment. • The effects of civic literacy on tolerance vary by relational intimacy Civic literacy makes the biggest difference for tolerance in less personal settings like commerce, schooling, and recreation-where willingness to engage rises by 15-18 points. The effect is smaller, but still visible, in more personal contexts such as marriage or dating.

format_quoteCivic literacy enhances tolerance by 15-18 points in less personal contexts, underscoring its practical implications for social interactions.format_quote

More than politics: How ideology shapes who Americans trust, date, and avoid

Institute for Governance and Civics, 2025

The Institute for Governance and Civics conducted a nationally representative survey of 1,004 U.S... more The Institute for Governance and Civics conducted a nationally representative survey of 1,004 U.S. adults to examine Americans' willingness to engage with those of opposing political views and other groups. The survey measured tolerance across seven everyday scenarios. The goal: to understand how political, demographic, and ideological factors shape tolerance. The results paint a troubling picture: political identity now shapes not only Americans' civic behavior, but also their closest personal relationships-from friendships to family ties and romantic preferences. • Tolerance declines as relational intimacy increases While 73% of respondents would join a recreational activity with someone who holds opposing political views, just 52% would be comfortable with that person marrying into their family-and only 41% would date the person. • Women show greater intolerance in the context of intimate relationships Women are more likely than men to say they would not date someone with different political views (35% of women vs. 25% of men). Among single adults ages 18 to 29, the gap is even wider: 42% of women say they wouldn't date across political lines, compared to just 16% of men. For those 30 and older, the difference is smaller (32% vs. 26%) but still exists. • Intolerance is most pronounced among those at the ideological extremes Only 26% of people who are very liberal and 36% of those who are very conservative said they would be okay with someone from the other side marrying into their family. But more moderate respondents were more open: 39% of somewhat liberal and 64% of somewhat conservative people said they would be comfortable with it.

format_quoteOnly 26% of very liberal and 36% of very conservative individuals would accept a family member marrying someone from the opposite political side.format_quote

SCHOOL CONTEXT MATTERS: PUBLIC VIEWS ON BOOK REMOVALS AND RELIGIOUS OPT-OUTS

Institute for Governance and Civics, 2025

Prior to the U.S. Supreme Court's ruling in Mahmoud v. Taylor-a case centered on whether parents ... more Prior to the U.S. Supreme Court's ruling in Mahmoud v. Taylor-a case centered on whether parents have a First Amendment right to opt their children out of public school lessons that conflict with their religious beliefs-Florida State University's Institute for Governance and Civics conducted a nationally representative survey of 1,004 U.S. adults. The survey, conducted between May 21 and June 3, 2025, gauged public views on the issues involved in the case, including: parental rights, religious accommodations, and public support for prohibiting and removing school books that contain transgender characters or storylines. Below, we highlight some of the key findings from the poll. • The public supports religious opt-outs. Roughly 6 in 10 Americans support allowing parents to opt their children out of elementary school lessons that conflict with their religious beliefs. Support remains high across most demographic groups and is largely unaffected by whether the lesson involves gender identity specifically. • Democrats and Republicans see the issues very differently. While Republicans overwhelmingly support opt-out rights (80.3%), Democrats are more divided (45.7%). The partisan gap is even wider when it comes to prohibiting and removing transgender-themed books from public schools, with 74.5% of Republicans in favor compared to just 22.8% of Democrats. • The public treats elementary schools and high schools differently. Support for prohibiting and removing transgender-themed books is much higher when students at issue are elementary students rather than high school students (53.5% vs. 40.3%). • K-12 parents are more sensitive to trans-themed books in elementary schools. Americans with children in K-12 schools are more likely to support trans-themed book prohibitions and removals (54.0%) than are non-parents (44.1%). Democratic K-12 parents are far more supportive of transgender-themed book removals in elementary schools (47.0%) than Democratic non-parents (19.8%).

format_quoteThe Supreme Court ruled 6-3 in Mahmoud v. Taylor, affirming parents' rights to opt children out of lessons conflicting with religious beliefs.format_quote

Trust, Tolerance, and Teaching: A National Survey

Institute for Governance and Civics, 2025

The Institute for Governance and Civics at Florida State University conducted a national survey i... more

Loss of Learning Time: A Case of Unintended Consequences

Show-Me Institute, 2025

In 2018, the Missouri Legislature removed the minimum requirement for public schools to be in ses... more In 2018, the Missouri Legislature removed the minimum requirement for public schools to be in session 174 days. The requirement that schools be in session for 1,044 hours remained in place. • The removal of the number-of-days requirement led to the proliferation of the four-day school week. • This policy change also had the unintended consequence of reducing overall time in school. We estimate a loss of 17 to 29 hours of school per year for the average student.

Trust in K-12 Schools: A Poll of Florida Voters

Institute for Governance and Civics, 2025

An alarming number of Floridians do not trust K-12 schools. But if schools focus more on civics, ... more An alarming number of Floridians do not trust K-12 schools. But if schools focus more on civics, they could increase public trust. Those are two of the key takeaways of our recently conducted poll of Floridians. The Institute for Governance and Civics at Florida State University partnered with Hunt Research to conduct a survey of 1,234 likely Florida voters before the 2024 general election on a host of issues dealing with education. The results showed: • A worrisome number of Floridians distrust K-12 schools; and • That distrust stems largely from concerns that schools have become too politicized. Yet, the survey also shows that there is a consensus on how to restore trust in schools. A plurality of Floridians agree that the purpose of K-12 education should be to prepare students to be responsible citizens. And they believe a greater focus on the Constitution and American civics will enhance their trust in schools. These findings reveal that a renewed focus on constitutionally grounded education focused on American civics will increase Floridians' confidence in K-12 education. And it will, at the same time, produce a more civically literate population.

Bryce's Law Revisited

Show-Me Institute, 2018

In 2013, Missouri enacted Bryce's Law. This law recognizes that children with disabilities such a... more In 2013, Missouri enacted Bryce's Law. This law recognizes that children with disabilities such as autism, cerebral palsy, and Down syndrome need education options other than a traditional, residentially assigned public school. 2. As enacted, Bryce's Law contemplates the creation of scholarshipgranting organizations (SGOs) that receive tax-deductible gifts from donors. This structure mimics what federal law already allows. Unfortunately, Bryce's Law, unlike federal law, also imposes significant compliance and reporting obligations on SGOs. 3. As of today, no scholarships have been provided under Bryce's Law. 4. The current funding structure under Bryce's Law is not achieving, and will not achieve, its objective and should be revised. 5. Pursuant to the Supreme Court's recent decision in Trinity Lutheran v. Comer, 1 Missouri should fund Bryce's Law by making public money available to the students who qualify.

format_quoteDespite recognizing needs of special education, Bryce's Law has not served any students under its current structure.format_quote

Available Seats 2.0: Opportunities Abound with Private School Choice

Show-Me Institute, 2018

If Missouri students were given the opportunity to attend the schools of their choice, they would... more If Missouri students were given the opportunity to attend the schools of their choice, they would find over 28,000 seats available in Missouri private schools. • A well-designed private school choice program could save the state a significant amount of money. • Even a generous tax-credit scholarship program could save the state money-and even if only half of the recipients were switching from public to private schools. • To further reduce the cost to the state of a tax-credit scholarship program, the credit amount could be set at a percentage of the donation to a scholarship-granting organization.

format_quoteMissouri private schools have 28,359 available seats, surpassing the total enrollment of the state's largest school district, Springfield.format_quote

The future of K-12 Funding

EdChoice, 2019

EdChoice is a nonprofit, nonpartisan organization dedicated to advancing full and unencumbered ed... more EdChoice is a nonprofit, nonpartisan organization dedicated to advancing full and unencumbered educational choice as the best pathway to successful lives and a stronger society. EdChoice believes that families, not bureaucrats, are best equipped to make K-12 schooling decisions for their children. The organization works at the state level to educate diverse audiences, train advocates and engage policymakers on the benefits of high-quality school choice programs. EdChoice is the intellectual legacy of Milton and Rose D. Friedman, who founded the organization in 1996 as the Friedman Foundation for Educational Choice.

format_quoteA coherent funding system allows universal choice maximizes educational resources for students and taxpayers alike.format_quote

Leaving a Classroom But Starting a School

Step up for Students, 2022

Longer days and fewer total hours: Examining the four-day school week in Missouri

Show-Me Institute, 2024

Book Review of New Pathways in Teacher Preparation and Certification Perspectives on Alternative

Journal of School Choice, 2024

Shuls School Finance in rural America

In 5-4 decision in 1973, the United States Supreme Court effectively stamped out the potential fo... more In 5-4 decision in 1973, the United States Supreme Court effectively stamped out the potential for future federal school finance litigation. The case was San Antonio Independent School District v. Rodriguez. The plaintiffs in the case claimed Texas' school funding system was unconstitutional under the Fourteenth Amendment, the equal protection clause, of the United States Constitution. The court ruled against the plaintiffs and created significant precedent by determining that education is not a fundamental right under the nation's constitution. Following the case, school finance litigation shifted to the state court systems. To date, school funding systems have been challenged in 45 states. Most recently, the Kansas Supreme Court ruled the state's school finance system unconstitutional in what can only be called a prolonged legal and legislative saga. Each school finance court case has hinged on the definition of either "adequacy" or "equity" and the specific requirements in the state's constitution. The Kansas case considered both issues. Adequacy typically refers to the level of education funding being enough to provide an education to each student that meets some specified level. Equity, on the other hand, delves into issues relating to spending disparities among school districts. It should go without saying that these are incredibly important concepts to grasp when considering school finance. They are, however, incomplete when we discuss rural school finance in particular. Here we must understand issues regarding economies of scale, property assessments, levy rates, and cost-ofliving adjustments, to name just a few. These factors impact the amount of money a school will receive to a huge degree. Leaving them out of the conversation is leaving much out of the school funding story. In this chapter, I explain how school districts and policy makers must understand the myriad of issues surrounding rural school finance. This encompasses more than just

The Father of the School Choice Movement

Journal of School Choice, 2024

Milton Friedman is widely considered the intellectual father of the school choice movement. While... more Milton Friedman is widely considered the intellectual father of
the school choice movement. While Friedman deserves much
credit, Father Virgil Blum stands out as an influential figure in
the nascent school choice movement. Using archival research,
this paper examines Blum’s contributions to the movement. From
his 1954 doctoral dissertation, which made the legal case for
funding religious schools, to his 1958 book, Freedom of Choice
in Education, and his decades-long career as a professor, Blum
was a tireless advocate for educational freedom. While Friedman
made the market argument, Blum made the legal, moral, and
religious freedom arguments for school choice.

format_quoteThe Supreme Court’s 2002 decision marked a crucial milestone for private school vouchers, legitimizing public funding for educational choice.format_quote

The Five Factors: How School Leaders Can Improve Teacher Retention

Journal of Educational Leadership & Policy Studies, 2024

Prior research has identified five in-school factors that impact teacher retention: positive scho... more Prior research has identified five in-school factors that impact teacher retention: positive school culture, supportive administration, strong professional development, mentoring programs, and classroom autonomy. While much of the national attention is focused on state or district-level policies to address the teacher retention crisis, this study focuses on how school leaders can improve teacher retention by addressing the five factors. Semi-structured interviews with school leaders were used to provide examples of how principles can improve school culture and increase teacher retention.

Fixed: An Analysis of Missouri's Foundation Formula and How Static Local Effort Leads to Increased Inequities

PRiME Center at Saint Louis University, 2024

Missouri's current school funding formula was instituted in 2005. The foundation formula determin... more Missouri's current school funding formula was instituted in 2005. The foundation formula determines how much aid a school district will receive from the state by first determining how much aid the district should have to provide an adequate education, as determined by a formula, and then subtracting how much can be raised locally.

Evidence Based? A Systematic Literature Review of the Four-Day School Week