Roles and Competencies in School Management: Comparative Study between São Paulo/sp and Sobral/ce

Alexandre Gama de Souza; Tatiana Giselle Guimarães Lopes

DOI: 10.22167/2675-6528-202602609

Article derived from a Course Conclusion Work (TCC), with content based on the student’s original work and adapted to the editorial format of the E&S Magazine with the support of the ResumeAI tool, an artificial intelligence solution developed by Instituto Pecege for textual synthesis and organization.

Summary

A comparative study analyzed the job descriptions and competency development in school management in the municipalities of São Paulo/SP and Sobral/CE, based on official documents published between 2015 and 2024. The objective was to identify patterns, gaps, and contributions in the selection notices and public examinations for positions of director, pedagogical coordinator, and school supervisor, justified by the strategic relevance of school management for educational quality. The investigation adopted a qualitative approach, descriptive and comparative in nature, using documentary analysis of official public sources. The Requirements No. 02/2015, from the Municipality of São Paulo, and the Requirements No. 009/2021, from the Municipality of Sobral, which met the defined criteria, were selected. The results showed that both municipalities required higher education in teaching degrees and minimum teaching experience. However, they differed in central aspects: São Paulo favored stability, statutory employment, and emphasis on legal and theoretical bases, while Sobral adopted commissioned positions, selection processes focused on analytical skills and socio-emotional leadership, as well as mandatory continuing education. The analysis indicated that the models reflected distinct philosophies of people management and the role of the school manager, but converged in the valuation of permanent training and pedagogical leadership. It was concluded that school management should be understood as a strategic space for articulation between technical, pedagogical, and relational competencies, essential for strengthening public education networks.

Keywords: Continuing education; Educational management; Competency-based management; Pedagogical leadership; Public policies.

1. Introduction

School management is configured as a central element for the effectiveness of educational institutions, directly influencing the quality of education and pedagogical processes. Its strategic relevance is undeniable, as it directly impacts the learning environment and student development.

In the Brazilian context, public policies for basic education face significant structural challenges. The fragmentation of actions and the lack of articulation between different management levels are factors that frequently compromise the implementation of consistent educational practices (Dourado, 2007). In this scenario, educational management assumes a strategic role, requiring not only technical competencies but also the ability to articulate innovative paradigms that respond to contemporary complexities (Lück, 2007).

The organization and management of the school, as highlighted by Libâneo (2007), involve the integration of pedagogical, administrative, and human dimensions. To this end, school managers need skills to mediate conflicts, promote democratic participation, and align educational practices with institutional reality. The figure of the educational manager is fundamental, acting as an articulator of public policies and a promoter of an inclusive and efficient school environment (Silva, 2009).

However, studies indicate that the performance of these professionals is often limited by bureaucratic structures and lack of autonomy, factors that hinder innovation and adaptation to local demands (Oliveira and Vasques-Menezes, 2018). This reality highlights the need to improve management models so that they can effectively contribute to the quality of teaching.

The problem of this study lies in the need to understand how job description and analysis in school management can contribute to the development of skills aligned with contemporary educational challenges. To this end, a comparative analysis is proposed between the municipalities of São Paulo/SP and Sobral/CE. These locations are recognized for their distinct trajectories in educational management, with São Paulo representing a scenario of great administrative complexity and Sobral standing out nationally for innovative educational policies and significant results in performance evaluations.

The relevance of the research is based on the urgency to improve management models that value not only formal requirements, such as academic background, but also behavioral and strategic competencies. As Lück (2007) demonstrates, educational management must transcend traditional approaches, incorporating practices that encourage collective participation and creative problem-solving. The analysis of official documents, such as hiring notices, allows for the identification of patterns and gaps that can guide the professionalization of school management (Libâneo, 2007). By integrating theoretical contributions from authors such as Dourado (2007), Libâneo (2007), and Oliveira and Vasques-Menezes (2018), this study seeks not only to broaden the academic debate on school management but also to offer practical subsidies for the qualification of educational public policies. Thus, the objective of this work was to comparatively analyze the job descriptions and the competencies required for school managers in the municipalities of São Paulo/SP and Sobral/CE, based on official documents, aiming to identify patterns, gaps, and contribute to the professionalization of educational management.

2. Material and Methods

The present research adopted a qualitative approach, of a descriptive and comparative nature, according to the classifications proposed by Gil (2002) and Cervo et al. (2007). This methodology was considered adequate for the analysis of organizational phenomena in the context of educational public management, allowing for an in-depth understanding of the dynamics involved in job description and competency development.

The main technique employed was documentary research, which was based exclusively on official and public secondary sources. The data were obtained through institutional portals of the selected municipalities, ensuring the authenticity and accessibility of the information used for the study.

The investigation was designed as a multiple-case study, with the municipalities of São Paulo/SP and Sobral/CE as units of analysis. The choice of these locations was justified by the relevance and notoriety of their educational networks, which present management models with contrasting features in policies for training and valuing education professionals.

This methodological configuration favored the identification of structural similarities and differences in the practices of analysis and formalization of educational leadership positions. Thus, the aim was to understand how distinct conceptions of public educational management influence the formulation of requirements for school managers.

The data were collected through the selection and analysis of official documents, focusing on public tender notices and selection processes. These notices were intended for the provision of the positions of school director, pedagogical coordinator, and school supervisor, published between the years 2015 and 2024.

The documentary search was conducted systematically on public transparency platforms and the institutional websites of the Municipal Secretariats of Education. During this process, criteria of authenticity and currency of the documents were rigorously observed, ensuring the reliability of the sources.

For the inclusion of documents in the analysis, specific criteria were established. Only those with unrestricted public access, clarity in the description of job duties, competencies, and requirements, and relevance to the people management policy in the public education network were considered.

Additionally, the documents should have been published between the years 2015 and 2024, with the objective of covering the most recent and representative calls for proposals. This temporal delimitation allowed for a focused analysis of contemporary educational management policies and practices.

In the period from 2015 to 2024, the search resulted in the identification of only one public notice in each municipality that fully met the established criteria. For São Paulo/SP, Public Notice No. 02/2015 was selected, and for Sobral/CE, Public Notice No. 009/2021, which served as the main sources of analysis.

The analysis of the documents followed an interpretive qualitative approach, based on categories constructed from the theoretical framework of public and educational management. The analysis categories included the structure of positions, duties and responsibilities, and the requirements for training and experience.

The technical and behavioral competencies required were also analyzed, as well as the language and intentionality present in the normative texts of the requirements. This categorization allowed for a detailed exploration of the elements that make up the profile of school managers in each municipality.

The documentary analysis was guided by the principles proposed by Cellard (2008), which advocates for a critical and contextualized reading of the documents. Elements such as the authenticity, representativeness, and internal coherence of the information contained in the Requirements were considered.

This analysis strategy allowed us to understand how different conceptions of educational public management influence the formulation of leadership positions in schools. An emphasis on the more technical and managerial aspects was observed in São Paulo/SP, and an orientation towards the more pedagogical and formative aspects in Sobral/CE.

Two guiding questions were adopted for the analysis: What were the patterns, gaps, and contributions identified in the analyzed documents for the professionalization of educational management? And what are the profiles of the managers outlined by the analyzed calls for proposals?

3. Results and Discussion

This section presents the results obtained from the documentary analysis of the selection notices for school management positions in the municipalities of São Paulo/SP and Sobral/CE, published between 2015 and 2024. The findings reveal significant convergences and divergences in selection criteria, evaluation processes, methods of filling positions, continuing education strategies, and performance evaluation mechanisms for school managers. The discussion of these results is carried out in light of the specialized literature, seeking to interpret the meaning of the findings in relation to the research problem and the study’s objective, which was to comparatively analyze the job descriptions and the competencies required for school managers.

Initially, a characterization of the municipal education networks of São Paulo and Sobral was carried out to contextualize the management models. Sobral/CE stands out in the Brazilian educational scenario, with approximately 107 schools and 29,060 students, served by about 1,540 teachers. The quality indicators for education are remarkably expressive, with the municipality achieving a Basic Education Development Index (IDEB) of 9.6 in the initial years and 7.9 in the final years of elementary school in 2023, values much higher than the national average.

Regarding adequate learning, Sobral’s data for the 5th grade in 2023 indicated that 98% of students reached adequate levels in Portuguese Language and 98% in Mathematics. For the 9th grade, the percentages were 88% in Portuguese and 87% in Mathematics. Educational equity is also a strong point, with 90% of students from low socioeconomic status (SES) in the early years achieving adequate learning in Portuguese and 92% in Mathematics in 2019, while for those from high SES, the rates were 95% in both subjects.

However, the analysis by race/color in Sobral revealed some disparities in the initial years of 2019, with 81% of Black students achieving adequate learning in Portuguese, compared to 93% of White students. In Mathematics, the percentages were 82% for Black students and 93% for White students. In the final years, the differences were more pronounced: students from low SES achieved 71% in Portuguese and 61% in Mathematics, while those from high SES achieved 85% and 74%, respectively. By race/color, the indicators in the final years were 73% for Black students and 84% for White students in Portuguese, and 64% for Black students and 74% for White students in Mathematics.

The age-grade distortion rate in Sobral is also low, with only 2% in the initial years and 2.9% in the final years in 2024, evidencing a more fluid school trajectory. This data reinforces the perception of Sobral as a school system with high academic performance and relative equity, although still facing challenges in reducing socioeconomic and racial inequalities, especially in the final years of elementary school. School management, in this context, assumes a strategic role in maintaining progress and addressing gaps.

In contrast, the municipal network of São Paulo/SP, the largest in the country, serves approximately 1,344,601 students in 2,701 schools, with 67,350 teachers. In 2023, the municipality registered an IDEB of 5.6 in the initial years and 4.8 in the final years of elementary school, values that indicate significant challenges compared to Sobral. Adequate learning in the 5th grade was 49% in Portuguese Language and 38% in Mathematics, and in the 9th grade, 33% in Portuguese and 13% in Mathematics.

Educational equity in São Paulo also presented challenges in 2019. In the initial years, 59% of low SES students achieved adequate learning in Portuguese Language and 49% in Mathematics, while for high SES students, the percentages were 75% and 67%, respectively. In the breakdown by race/color, 52% of black students achieved adequate learning in Portuguese and 44% in Mathematics, compared to 71% and 62% for white students.

In the final years, disparities persisted: students from low SES had 34% adequate learning in Portuguese Language and 13% in Mathematics, while those from high SES achieved 49% and 24%, respectively. By race/color, the percentages were 32% for Black students and 13% for White students in Portuguese, and 48% for Black students and 23% for White students in Mathematics. The age-grade distortion in 2024 was 3.6% in the initial years and 8% in the final years, indicating greater difficulties in the academic trajectory of students in São Paulo.

The political-institutional trajectory of each municipality also proved to be a determining factor. Sobral demonstrated notable political-party continuity since the late 1990s, which allowed for the construction of a long-term educational project, with right-age literacy goals and methods maintained for over two decades. This governmental permanence facilitated the transformation of local educational policy and consistent alignment in the training and selection of its management staff.

In contrast, São Paulo experienced frequent alternations in the municipal Executive Power during the same period, resulting in discontinuity of guidelines and successive reformulations of educational projects with each change of administration. This political volatility impacted the construction of provision models and training requirements, highlighting the importance of stability for the consolidation of effective public educational policies, as suggested by the literature.

Document analysis of the selected calls for proposals

The analysis of the selection notices for the positions of School Director, Pedagogical Coordinator, and School Supervisor in the two municipalities revealed both convergences and divergences. Both municipalities require a higher education degree in teaching, preferably in Pedagogy, and minimum teaching experience. In São Paulo, Notice nº 02/2015, item 1.3, pages 25-26, establishes three years of effective service in the municipal teaching profession. In Sobral, Notice nº 009/2021, item 6.1.6 f, requires two years of experience as a Basic Education teacher.

In São Paulo, complementary qualification is more specific, requiring graduate studies in the education field if the candidate does not have a degree in Pedagogy, according to Public Notice nº 02/2015, item 1.3, pages 25-26. In Sobral, complementary qualification is not mandatory, but it is considered a differential in the interview, according to Public Notice nº 009/2021, item 8 f. This difference suggests a greater appreciation for formal specialization in São Paulo, while Sobral focuses on competencies demonstrated in the selection process.

The selection processes also present substantial distinctions. In São Paulo, the positions of Director and Supervisor are filled through public examination of tests and titles, governed by specific requirements with formal stages and broad competition. The provision is for a permanent position, with appointment through public examination according to the Municipal Teaching Statute. In Sobral, however, the selection process is simplified, with qualifying and eliminating stages, including an objective test, profile analysis, and interview, conducted by the Municipal Department of Education to form a pool of school managers. The provision is for a commissioned position, with discretionary appointment and no permanent link.

Continuing education and skills development are addressed in distinct ways. In São Paulo, participation in training courses is foreseen, but it is not a mandatory step for entry. In Sobral, participation in a training course is a mandatory stage of the selection process, integrating the manager’s evaluation and preparation. This Sobral approach aligns with the perspective that continuous training is intrinsic to professional development and competency-based management (Fleury and Fleury, 2001).

Performance evaluation also differs. In São Paulo, it is mentioned in later regulations, with defined criteria for periodic evaluation of managers’ performance. In Sobral, remaining in office is conditioned on performance evaluation, with criteria established in the public notice and the possibility of dismissal at any time. This difference reflects the nature of the employment relationship and the people management philosophy of each municipality, with Sobral using evaluation as an instrument for strategic alignment and results induction.

Analysis and Discussion

The analysis of the public notices from São Paulo/SP and Sobral/CE reveals that, although both municipalities demonstrate concern for the qualification of managers, their approaches diverge significantly, reflecting distinct models of educational management. In São Paulo, the emphasis is on the stability of public careers and the institutionalization of positions, with provision through public examination and statutory vínculo. This approach tends to provide greater security and predictability for professionals, which can attract talent in the long term, but may also generate some rigidity in allocation and development processes.

In Sobral, the model of provision through commissioned positions, with diversified selection processes and a focus on competencies, allows for greater flexibility and assertiveness in allocating managers to school units, according to profile and needs. This practice aligns with competency-based management, which seeks to optimize organizational performance through the continuous development of individual and collective capabilities (Fleury and Fleury, 2001). The absence of stability, however, can be a risk factor for the retention of qualified professionals, as argued by Chiavenato (2014), especially in networks that depend on the consolidation of successful practices.

The selection criteria verified in the two municipalities demonstrate a growing concern with the leadership profile and the competencies of school managers. Perrenoud (1999) already highlighted that educational management requires competencies that transcend the technical-administrative domain, including the ability to lead teams, formulate and execute pedagogical projects, and dialogue with the school community. The emphasis on teaching experience, continuous training, and interpersonal skills in the requirements corroborates the vision that the school manager must act as an articulator of the pedagogical project and a promoter of a learning culture.

Continuing education is a point of convergence, being valued in both municipalities, although with distinct formats. In São Paulo, participation in training programs is emphasized, while in Sobral, training is a mandatory stage of the selection process, strongly linked to the municipal political-pedagogical project. This linkage in Sobral allows for a clearer alignment between the performance of managers and local educational objectives, while in São Paulo, the challenges of scale and institutional diversity may limit the effectiveness of training actions, as pointed out by Dourado (2014).

Performance evaluation is also a common mechanism, but with different emphases. São Paulo applies mechanisms based on learning goals and institutional performance indicators. Sobral, in turn, monitors performance based on educational results and pedagogical articulation capacity, in line with the strategic objectives of the Municipal Department of Education. This results-oriented approach of Sobral reflects a management philosophy that seeks institutional effectiveness and the continuous alignment of individual competencies with organizational objectives (Chiavenato, 2014).

Profile of Managers expected by each call for applications

The profile of the expected manager in Sobral is multifaceted, combining technical, interpersonal, and legal skills, aligned with a culture of innovation and results. The Sobral notice requires knowledge of educational indicators such as IDEB, SAEB, PISA, and SPAECE, demonstrating that management is data-driven. The manager is seen as an analyst capable of diagnosing problems and planning effective pedagogical actions, transforming into a strategist who makes evidence-based decisions.

The emphasis on people leadership and the ability to build bridges is another pillar of Sobral’s profile. The public notice highlights the importance of organizational and educational leadership, as well as the need for socio-emotional skills. The appreciation of the relationship between “school, family, and community” aligns with Freire’s (1996) vision of educational practice as an act of autonomy and shared responsibility. Socio-emotional skills are essential for social progress, as the OECD (2015) highlights, and Sobral’s ideal manager is a leader who mobilizes and inspires their team and the community to achieve common goals.

Sobral’s manager profile also requires legal knowledge and an innovative bias. The list of legislations, including municipal ones, in the curriculum indicates that the manager must be an expert in their area, capable of navigating the legal framework to ensure management autonomy and implement innovations, such as the use of “new technologies in management”. The mention of publications from UNDIME, UNICEF, MEC, and INEP (2007) reinforces that the municipality seeks a professional who applies best practices and stays updated with educational trends, combining technical rigor with the capacity to innovate.

In contrast, the profile of the manager expected by the municipal network of São Paulo, according to the bibliography provided in the Requirements, goes beyond a mere administrator. He is configured as a pedagogical and socially engaged leader, with profound knowledge of the legal and theoretical framework of Brazilian education. The vast list of documents and references indicates that the manager must be an expert in educational policy, mastering the national curriculum guidelines for Early Childhood Education and Elementary Education, in addition to complex legislation on inclusive special education (Mantoan, 2015; Ropoli et al., 2010) and ethnic-racial relations.

This legislative emphasis in São Paulo points to a professional who understands the school as a space for guaranteeing rights and combating inequalities. The bibliography also highlights the role of the manager as a promoter of democratic and participatory management. The inclusion of works by Paulo Freire and Ferreira (2013) evidences the need for a manager who practices horizontal management and mobilizes the school community in the construction of the Political-Pedagogical Project (PPP). The São Paulo manager must apply theory to the daily practice of the school, transforming principles of autonomy and dialogue into reality, opposing a merely managerial approach.

The São Paulo network also expects a manager who acts as a curator of knowledge and an incentivizer of continuous training. The presence of references on curriculum, such as the works of Sacristán (2013), and on teacher training, with authors like Pimenta and Ghedin (2006) and Imbernón (2006), shows that the professional must be a mentor and an articulator of their team’s development. He is responsible for creating a learning environment for teachers and students, promoting a culture of reflection on pedagogical practice, interdisciplinarity (Tyhiesen, 2008), and the constant search for new knowledge, ensuring that the school is a space of constant renewal and academic excellence.

The Profiles of Managers in Light of School Management Literature

The comparative analysis of the programmatic contents of the calls for São Paulo/SP and Sobral/CE allows for the identification of school manager profiles that, although distinct in their approaches, dialogue with the central functions of educational management established in the literature. In Sobral, the manager is outlined as a results-oriented strategist, with a strong command of data and analytical skills. This emphasis refers to the conception of management as a practice focused on institutional effectiveness, approaching the strategic role of People Management, which seeks to align individual competencies with organizational objectives (Chiavenato, 2014).

This perspective in Sobral also aligns with the concept of competency-based management developed by Fleury and Fleury (2001), in which organizational performance depends on the continuous mobilization of technical and relational knowledge. The appreciation of these competencies in the Ceará municipality is evident, indicating a search for professionals who not only possess knowledge but also demonstrate the ability to apply it effectively to achieve the desired educational results, contributing to the continuous improvement of teaching quality.

In contrast, the expected profile in São Paulo prioritizes the political-pedagogical dimension, based on a broad legal and theoretical foundation. This configuration aligns with what Libâneo (2007) and Paro (2015) advocate as the core of school management: the democratization of the school, the strengthening of the Political-Pedagogical Project, and the collective construction of decisions. The emphasis on authors such as Freire, Sacristán, and Imbernón in the public notice’s bibliography reinforces the conception of the manager as a pedagogical leader and social articulator, in line with Lück’s (2007) perspective, which understands educational management as a paradigmatic process of integration between administrative and pedagogical dimensions.

These differences highlight that school management cannot be reduced to a merely bureaucratic function, but involves the construction of specific competencies, as Perrenoud (1999) had already pointed out. While Sobral outlines a manager focused on measurable results and aligned with the monitoring of public policies, São Paulo structures a profile closer to what Oliveira and Vasques-Menezes (2018) describe as a mediating manager, responsible for ensuring the balance between legal requirements, democratic principles, and pedagogical needs, promoting an inclusive and participatory school environment.

The literature also highlights that the quality of management depends not only on institutional design, but on the continuous training and development of the professional. Silva (2009) reinforces the importance of the educational manager as an agent of transformation, while Dourado (2007) points out the limits of educational policies when there is no appreciation and adequate conditions for managerial performance. At this point, a convergence is observed between the two municipalities: both São Paulo and Sobral incorporate continuous training as a structuring element, albeit in different formats, recognizing it as an indispensable requirement for the improvement of pedagogical practice and management.

In summary, the profiles outlined by the analyzed calls for proposals, although distinct in their approaches, reflect concerns widely debated in the literature on school management. Both models seek managers capable of articulating technical, pedagogical, and relational competencies, value continuous training, and understand management as a space for transformative leadership, not just bureaucratic execution. The results indicate that school management should be understood as a strategic space for articulating technical, pedagogical, and relational competencies, essential for strengthening public education networks and improving educational quality, directly responding to the central objective of this study.

4. Conclusion

This study comparatively analyzed the job descriptions and competencies required for school managers in the municipalities of São Paulo/SP and Sobral/CE, based on official documents, seeking to identify patterns, gaps, and contribute to the professionalization of educational management. It was found that both municipalities required higher education in teaching degrees and minimum teaching experience, converging in the valuation of continuous training and pedagogical leadership. However, it was observed that São Paulo favored public career stability and emphasis on legal and theoretical bases, outlining a manager as a pedagogical leader and social articulator. In contrast, Sobral adopted commissioned positions and selection processes focused on analytical skills, socio-emotional leadership, and mandatory continuous training, configuring a strategist manager oriented by results. This analysis revealed that the models reflect distinct philosophies of people management and the role of the school manager, but both seek the qualification of the professional.

The main contribution of this work lies in demonstrating that the format of the people management policy is a critical variable in determining the direction of public education, offering subsidies for academic debate. Although the São Paulo model provides greater stability, it can generate rigidity in allocation and development processes. On the other hand, the flexibility of the Sobral model, while promoting agility and alignment with local policies, can present challenges in retaining qualified professionals due to the absence of stability. It is concluded that school management must be understood as a strategic space for articulating technical, pedagogical, and relational competencies, essential for strengthening public education networks and for improving educational quality.

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Article originating from the Course Conclusion Work of the Specialization in School Management of the MBA USP/Esalq

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