September 30, 2026
Public communication: strategies to increase adherence to the São Paulo program for professional qualification and employability
Public Communication: Strategies to Increase Adherence to the Paulista Program for Professional Qualification and Employability
Douglas Martins de Souza; Teresa Cristina Pitombo
DOI: 10.22167/2675-6528-202602842
Article derived from a Final Course 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.
Abstract
This study analyzed the causes of low adherence to the short-term professional qualification program of the Government of the State of São Paulo. The objective was to understand citizens’ perceptions, communication challenges, and institutional barriers that influenced the engagement of potential beneficiaries. To this end, a mixed methodology was adopted, which included quantitative research with 220 respondents, qualitative interviews with two managers responsible for the program’s execution, and a literature review. Data were collected between January and March 2026 and analyzed by method triangulation. The results indicated that factors such as poorly segmented communication, excessively institutional language, low digital presence, absence of integrated metrics, and noise between different institutional levels hindered the reach and mobilization of the target audience. A lack of perceived value and difficulty in demonstrating the concrete benefits of the courses in terms of employability were also observed. Based on these findings, an Integrated Communication Plan oriented by the beneficiary experience was developed, aiming to expand the reach of public policy, strengthen its identity, qualify the experience, and increase citizen adherence.
Keywords: Integrated communication; Governmental marketing; Public policies; Professional qualification.
1. Introduction
The State of São Paulo faces a challenging scenario in the labor market, with approximately 1.2 million unemployed people, according to 2025 data from the Brazilian Institute of Geography and Statistics (IBGE). This number represents about five percent of the economically active population. In parallel, several sectors of the São Paulo economy report significant difficulties in filling available vacancies, due to the scarcity of professionals with the necessary qualifications.
A survey conducted by the Getúlio Vargas Foundation (FGV) in 2025, covering the sectors of Manufacturing Industry, Services, Commerce, and Construction, revealed that 62.3% of companies had difficulties hiring or retaining employees, representing an increase of 3.6% compared to the previous year. This situation is corroborated by the Talent Shortage 2025 study (ManpowerGroup, 2025), which indicated that 88% of employers in the city of São Paulo and 84% in the rest of the state encountered obstacles in finding professionals with the required skills.
To mitigate this problem, the Government of the State of São Paulo has been implementing public policies focused on short-term professional training, aiming at employability. However, despite efforts to expand productive inclusion, the population’s adherence to these programs is still limited, with the supply of vacancies exceeding demand. The educational program in question, launched in 2023, made a total of 264,486 places available in free courses until 2025, but registered only 174,649 enrollments, which corresponds to 66% of the offer. Of these enrolled students, only 36,479 completed the classes, evidencing a mismatch between the program’s capacity and the population’s effective participation.
This discrepancy between the supply of qualifications and the low citizen adherence raises crucial questions about the factors influencing engagement. Communication, in this context, plays a fundamental role in expanding the reach and effectiveness of such initiatives. Ravizzoli (2024) highlights the need for educational institutions to strengthen their relationship with the public, understanding their expectations, needs, and motivations, principles applicable to public training programs.
To understand the theme, it is essential to distinguish traditional marketing from public marketing. Cezar (2019) argues that public marketing is not guided by the logic of profitability, but by a relationship in which the citizen is simultaneously a financier, user, and overseer of services. Ferreira Junior (2017) complements that, just as the customer is the focus in the private sector, the citizen is the central axis of governmental marketing actions, which must identify social needs, plan strategies, and ensure the effective delivery of products and services. The program analyzed in this study is configured as a representative case of public marketing.
From the perspective of Integrated Marketing Communication (IMC), Kotler and Armstrong (2023) explain that organizations must strategically coordinate all their communication channels to ensure that the public receives aligned, clear, and compelling messages about the company and its offerings. The application of these concepts is crucial for public policies to effectively communicate their value.
The low adherence to the professional qualification program does not stem from an isolated problem, but from a set of interconnected factors involving institutional challenges, communication weaknesses, and gaps in user experience. Given this scenario, this study aimed to generally identify the main institutional and communication barriers to the population’s adherence to the program and propose strategic actions with an Integrated Communication Plan, capable of increasing the effectiveness of this productive inclusion policy.
2. Material and Methods
This study was developed with an exploratory and descriptive character, seeking to identify the causes, perceptions, and barriers related to citizen engagement, as well as to analyze the way in which the professional qualification program was communicated and received by the target audience. A mixed methodological approach was adopted, combining quantitative and qualitative methods, organized in complementary stages for a comprehensive understanding of the phenomenon.
Mixed research was chosen for its ability to integrate different perspectives, making public action evaluations more consistent. According to Batista and Domingos (2017), this combination allows for a simultaneous understanding of the results achieved and the processes that explain their occurrence in diverse social realities. While the quantitative approach focused on identifying effects and patterns, the qualitative approach delved into the reasons underlying these results, contributing to contextualized interpretations.
The first stage of the research consisted of a survey of the academic literature, which grounded the study. Topics such as integrated public communication, employability policies, and consumer/citizen behavior were addressed, establishing the theoretical basis for the analysis of empirical data. This literature review provided the necessary conceptual framework for interpreting the findings.
The second stage comprised quantitative research, conducted through an online questionnaire. The instrument was applied using the Google Forms platform and consisted mainly of multiple-choice questions, structured on a Likert scale. The objective was to measure the perceptions, knowledge, and attitudes of potential beneficiaries regarding the professional qualification initiative.
The participants in the quantitative research were residents of the state of São Paulo, of economically active age, from sixteen years old onwards, encompassing different educational levels. The sampling adopted was non-probabilistic convenience sampling, considering the availability of respondents and the dissemination channels used to reach the target audience.
Quantitative data collection occurred in two phases. The first phase was conducted between January 19 and 30, 2026, through dissemination on social networks such as LinkedIn, Instagram, WhatsApp groups, and thematic communities on Facebook, resulting in 160 respondents. Initial data indicated the need to broaden the reach to unemployed individuals with immediate interest in professional qualification.
In response to this need, a second in-person data collection phase was conducted between February and March 2026. This phase took place at three job fairs promoted at the Worker Service Posts (PATs): one in the city center, another in Capão Redondo, in the south zone, and the third in the municipality of Ferraz de Vasconcelos, in the metropolitan region. The in-person collection increased the total number of participants to 220 respondents, allowing for greater diversification of profiles aligned with rapid professional qualification.
The data collected in the quantitative survey were organized and tabulated in electronic spreadsheets. The analysis was performed using descriptive statistics, with the purpose of identifying patterns and trends in the perceptions and attitudes of the respondents. This procedure allowed for a structured view of the public’s knowledge and engagement with the program.
Complementarily, qualitative research was conducted, consisting of in-depth interviews with two managers. The participants held leadership positions and were directly involved in the formulation, management, and execution of the educational program. The objective was to understand internal perceptions regarding decision-making processes, adopted strategies, and challenges faced throughout the implementation of the educational action.
The qualitative interview was conducted jointly with the two managers, for two hours, on February 23, 2026. A semi-structured script composed of open-ended questions was used, allowing the participants to address strategic, operational, and communicational aspects of the qualification initiative from the public administration perspective.
To give robustness to the collected data, triangulation of methods was performed, crossing the findings of quantitative research, qualitative research, and academic literature. Yin (2016) explains that triangulation consists of seeking at least three distinct ways to verify or confirm an event, a description, or a fact presented in a study. This procedure made it possible to identify points of convergence and divergence between the sources, strengthening the validity of the information obtained.
Ethical considerations were observed, ensuring the consent of the participants in the quantitative research. An option for consent was included in the online form, where respondents attested to their voluntary participation and understanding of the research objectives, how it would be conducted, and the benefits involved, as described in Appendix D.
3. Results and Discussion
The investigation into the low adherence to the professional qualification program of the Government of the State of São Paulo revealed a multifaceted scenario, where institutional fragilities, communication challenges, and gaps in user experience are interconnected. The results obtained through quantitative research and qualitative interviews, along with the literature review, allowed for the identification of critical factors limiting the engagement of potential beneficiaries, providing subsidies for the development of a strategic communication plan.
Quick qualification for employability
The educational program analyzed constitutes a public policy of the Government of the State of São Paulo, established in 2023, with the objective of offering free, short-term vocational training, available in remote and in-person modalities. The initiative aims to serve everyone from citizens without formal qualifications to those in career transition or seeking updates, connecting participants with employment and income generation opportunities. The program is structured into different modalities, such as “Meu Primeiro Emprego” (My First Job), for young people aged 16 to 24 with a completed elementary education, “Novo Emprego” (New Job), for literate youth and adults seeking retraining, and “Empreenda” (Entrepreneur), aimed at formal and informal entrepreneurs, focusing on management and microcredit support. The execution of the classes is carried out through partnerships with the state administration, municipalities, and public or private institutions, seeking to expand access and the relevance of training within the São Paulo socioeconomic context.
Public perception
The quantitative research, which involved 220 predominantly urban and educated respondents, assessed the public’s level of knowledge, perception, and participation in relation to the program. One of the most notable findings was the discrepancy between recognition and participation: although 50.5% of respondents stated they knew about the program, only 7.7% enrolled in a course. This figure, considered low for a state-level public policy, reveals a conversion funnel with a sharp drop between the Awareness and Action stages, suggesting that, despite initial attention, elements that sustain interest and desire until the final stage are lacking, according to the AIDA model (Awareness, Interest, Desire, and Action) discussed by Rez (2016).
The program’s communication was one of the most critical points identified, with 64.1% of respondents considering the disclosure “little” or “very little”. This perception points to significant limitations in the reach, clarity, and frequency of messages, factors that directly influence the low conversion observed. The literature, as Velho et al. (2018) highlight, reinforces that public marketing must prioritize social impacts, and communication segmentation becomes essential to ensure effectiveness, avoiding a massive model that does not align with the actual habits of the target audience.
Regarding preferred channels for receiving information, WhatsApp was the most cited by 65.5% of participants, followed by email, with 43.6%. This preference indicates a demand for direct, personalized, and recurring communication, in contrast to excessively institutional and sporadic formats. Lack of time was pointed out as the main obstacle to participation, mentioned by 40.5% of respondents, followed by lack of knowledge about opportunities (39.1%), incompatible schedules (20%), and distance (13.6%). These results suggest that communication alone is not sufficient to solve adherence problems, requiring adjustments also in the offering, logistics, and format of classes to fit citizens’ routines.
The factors that most motivated participation in the program revealed a clear demand for practicality, employability, and credibility. The higher possibility of interviews was a motivator for 45.5% of respondents, while the recognized certificate was crucial for 45.9%. Short and free courses were cited by 36.4%, and online and free courses by 43.2%. This data indicates that the public values the concrete impact of qualification on employability and the ease of integrating studies into their routine, reinforcing the need for communication that highlights these benefits clearly and accessibly.
A management perspective
The interviews conducted with the two managers responsible for the program’s formulation and execution deepened the understanding of structural and communicational challenges. Among the main challenges cited were the need to ensure a sufficient number of enrollees to form classes, reach territories with distinct realities, reduce dropout rates, and adjust the offering to labor market demands. The managers agreed that low adherence is linked to multifactorial issues, including lack of awareness or limited understanding of the program, logistical barriers, and immediate expectations for employability returns, in addition to communication that often does not resonate with the target audience’s repertoire and informational habits.
In this context, Silva (2024) emphasizes that public sector marketing actions need to overcome barriers such as lack of trust and citizen disinterest, demanding intense engagement strategies, based on transparency and clarity of information to strengthen ties with the population. Managers also pointed out excessively institutional language, late or low-mobilization dissemination, noise between different institutional levels, and dependence on municipal communication, whose quality and reach varied widely among territories, as significant communication barriers. Furthermore, operational barriers emerged, such as dependence on municipalities for opening in-person classes, lack of instructors in technical areas, and contractual limitations that hinder quick adjustments to the course schedule, highlighting that adherence is not just a dissemination problem, but also a systemic execution capacity issue.
For improvements, the managers suggested a more user-centered language, expanded use of social media, dissemination of alumni testimonials, and greater continuity in outreach, converging with Silva’s (2024) perspective on the need for clear, accessible, and user-centered communication in public service. The author also emphasizes the importance of continuous monitoring of user experience to identify flaws and promote improvements, something that, according to the managers, is non-existent in the program, being limited to technical reports. Although joint interviews may have influenced the responses, the analysis revealed a consistent view of internal challenges.
Triangulation matrix
The triangulation of data, as proposed by Yin (2016), allowed for the cross-referencing of quantitative research findings, managers’ perceptions, and academic literature, strengthening the validity of the information. Regarding the beneficiary’s experience, quantitative participants expressed doubts about the program’s benefits and functioning, while qualitative managers reported difficulties with schedules and travel, in addition to requesting new courses focused on job opportunities. The literature, in turn, emphasizes that public marketing must place the citizen at the center, with clear and user-oriented language.
Regarding the scope of communication, quantitative research revealed low prior knowledge and that current channels have not fully reached the public. Managers confirmed that communication was institutional, poorly segmented, dependent on municipal support, and often late. The literature is categorical on this point, stating that segmentation is essential and that communication must be simple, multichannel, and user-oriented to be effective. As for barriers, quantitative participants mentioned lack of time and difficulties with digital access, corroborated by managers who cited municipal logistics, contractual restrictions, and lack of instructors in technical areas. The literature recognizes that public policies have operational complexity and require continuous adjustments.
Finally, regarding low adherence and perceived value, a portion of the quantitative audience knew the program and valued the qualification but did not enroll. The managers identified a limited understanding of the program’s value, without a direct connection to the job market. The literature, in turn, argues that public marketing needs to demonstrate social impact and that communication should reinforce the perception of value. The cross-referencing of this data demonstrated that the public policy, although solid and aligned with market demands, failed to build a convincing narrative to connect the offering, the qualification, and the real employment opportunities, confirming that successful actions depend on the perception of impact and clarity of purpose.
Analytical study
The in-depth analysis revealed that, despite the potential impact of competition from other free qualification courses, this factor was not mentioned by the managers, indicating a gap in management and a possible obstacle to adherence. Fernandes (2016) argues that a common mistake in educational marketing is to focus solely on the product, disregarding the competitive market. It is crucial to understand service quality from the consumer’s perspective and to continuously analyze the competition, its differentials, and benefits. A stance focused exclusively on the institution, without considering the public and the competitive environment, constitutes what the author calls “marketing myopia.”
Another critical point was the low digital presence and the absence of consolidated campaigns. Official data indicated only 19 posts on Instagram and 8 on LinkedIn in 15 months, with content replicated on Facebook and no specific production for TikTok, despite WhatsApp being one of the public’s preferred channels. The managers confirmed the lack of resources for content boosting, limiting the qualified and segmented reach of messages. Rez (2016) reinforces that trying to “address everything to everyone” is a strategic mistake, as it does not generate the desired impact, making it essential to segment the audience and carefully choose the content to be worked on.
The absence of integrated metrics for continuous user journey monitoring also compromised the capacity for diagnosis and engagement adjustments. Fernandes (2016) highlights that service quality is understood through measuring user satisfaction, allowing for the identification of flaws and the adoption of corrective measures. However, the program did not consolidate metrics that tracked the user from disclosure to course completion, nor did it conduct structured surveys on participation, limiting evidence-based decision-making. The combination of communication weaknesses, logistical barriers, and structural limitations demonstrates that adherence is influenced by diverse factors, not only by the quality of the course offering, but by the ability to communicate value, reduce everyday barriers, and position the program competitively in an ever-changing educational ecosystem.
Integrated Communication Plan
Based on the findings, an Integrated Communication Plan was developed, which, according to Velho et al. (2018), applies private marketing tools to the public sector when the citizen is the center of the service. The general objective of the plan is to restructure communication in an integrated, continuous, and user-centered manner, aiming to increase adherence, qualify the participant’s experience, and strengthen the perception of the program as a public policy for professional development. Among the specific objectives, the following stand out: increasing public knowledge about the initiative, facilitating understanding of the benefits and employability opportunities, reducing barriers to information access through real stories, expanding the reach of messages with diversified channels and simple language, and promoting engagement to stimulate behavioral change of the beneficiary.
As a first step, the plan suggests planning that considers the available (Business) Budget, an accurate diagnosis of the current stage through metrics and satisfaction surveys, and the definition of positioning, priorities, and goals. Proposed actions include creating dedicated social media profiles for the program on platforms like Instagram, Facebook, YouTube, TikTok, and LinkedIn, with daily posts, inspiring videos from students and instructors, calls for new classes, tutorials, and web series featuring success cases. Rez (2016) emphasizes the effectiveness of real-world examples and success stories. It also foresees the creation of regional WhatsApp broadcast lists for sending reminders and retention-oriented messages, as well as communities segmented by interest.
Regional mobilization will be strengthened through partnerships with Worker Service Centers (PATs), schools, and city halls, with the production of regional posters and flyers, and broadcast on community radio stations, sound cars, and local events. In the press and institutional communication, the plan foresees the dissemination of results and impacts, pre- and post-offer releases, exclusive notes, articles, and interviews on new modalities, in addition to thematic campaigns. For monitoring the participant’s journey, automatic messages, reminders, practical guidance, a Q&A channel, and email marketing will be implemented. The narrative will be adapted to the audience’s behavior, with the message “course your way, in your time,” highlighting the flexibility of the remote modality to overcome the barrier of lack of time.
The measurement of results will be carried out through indicators of paid and organic media, engagement, conversion, retention, and impact, with regionalized clipping by media type. In management, periodic satisfaction surveys with beneficiaries, partners, and affiliated city halls are suggested. The proposed Integrated Communication Plan is based on the understanding that increasing adherence to public policy depends on a strategy capable of reducing barriers, bringing the program closer to its audiences, and reinforcing its social value. Fernandes (2016) argues that strengthening communication requires an integrated perspective, combining tools such as advertising, personal selling, public relations, and promotions. By articulating digital and territorial actions, improving user experience, and strengthening social proof, the plan seeks to reposition the program not only as an offer of free courses but as a structured action for professional development and opportunity generation, aligned with market demands and the expectations of the São Paulo population.
In summary, the low adherence to the professional qualification program is a complex phenomenon, resulting from the interaction between poorly segmented and institutional communication, logistical and temporal barriers perceived by citizens, and operational and internal management challenges. The research revealed that, despite partial knowledge of the program, conversion into enrollments is low, and the perception of value and impact on employability are not effectively communicated. The proposed Integrated Communication Plan therefore seeks to overcome these weaknesses by adopting a user-centered approach, diversifying channels, segmenting messages, and continuously monitoring the beneficiary’s journey, aiming to broaden the reach of public policy and strengthen its identity as an effective instrument for productive inclusion and professional development.
4. Conclusion
The study sought to understand citizens’ perceptions, communication challenges, and institutional barriers that influenced the engagement of potential beneficiaries of the short-term professional qualification program of the Government of the State of São Paulo. It was found that low adherence resulted from a multifactorial set of issues, where poorly segmented and excessively institutional communication, low digital presence, and the absence of integrated metrics hindered the reach and mobilization of the target audience. Furthermore, a limited perception of value and difficulty in demonstrating the concrete benefits of the courses in terms of employability were identified, in addition to logistical and temporal barriers perceived by citizens. These findings, corroborated by the program managers, revealed that the public policy, although aligned with market demands, failed to build a convincing narrative to connect the qualification offer with real employment opportunities.
The main contribution of this work lies in the development of an Integrated Communication Plan, guided by the beneficiary’s experience, which aims to restructure communication to broaden the reach of public policy, strengthen its identity, and qualify the participant’s experience, ultimately seeking to increase citizen engagement. This plan proposes strategic actions to diversify channels, segment messages, and continuously monitor the user journey. However, the study presented limitations, such as the sample of the quantitative research, which included a high rate of employed respondents with high educational attainment, and the risk of mutual influence in qualitative interviews. For future studies, it is suggested to conduct research with more specific and targeted cuts for the target audience, in order to deepen the understanding of communication, public marketing, and citizen participation in employability policies in the Brazilian context.
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Article originating from the Final Course Work of the Specialization in Marketing of the MBA USP/Esalq
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