Functional Stability, Motivation and Self-Development of the Municipal Public Servant: Security or Stagnation?

Andressa Keissiane Andrade de Souza; Lair Barroso Arraes Rocha Silva

DOI: 10.22167/2675-6528-202602666

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

The growing discussion about the efficiency of Public Administration and the role of functional stability justified the study’s realization, given the controversies surrounding its impacts on the performance and development of public servants. The study aimed to analyze how stability influenced the self-development and professional performance of municipal public servants, verifying whether it acted as a factor of security and stimulus or as an element of stagnation. Methodologically, it was a qualitative, exploratory, and descriptive research, carried out through a literature review and a case study in a medium-sized city hall, with data collection through semi-structured interviews with servers and a human resources manager. The data were analyzed by triangulation between theory and empirical evidence. The results indicated that stability played a relevant role as a mechanism of institutional security and protection, favoring administrative autonomy and continuity, but it did not prove to be a determinant for the performance or demotivation of servers. It was found that factors such as working conditions, recognition, growth opportunities, and people management practices had a greater influence on motivation and self-development. It was also observed that, despite structural limitations, servers demonstrated commitment to their functions, with demotivation being more associated with organizational failures than with stability itself. It was concluded that stability, in isolation, does not compromise efficiency, and the adoption of effective people management practices is necessary to enhance performance in the public sector.

Keywords: Public administration; professional performance; professional development; People Management; work motivation.

1. Introduction

The public servant is legally defined as a person legally invested in a public office, created by law, with its own attributions, responsibilities, and remuneration, as established by Law No. 8.112/1990 (Brazil, 1990). Functional stability, an institute restricted to holders of permanent positions after fulfilling constitutional requirements, does not arise solely from passing a public examination, but from the nature of the functional link established between the servant and Public Administration (Machado et al., 2021; D’Avila, 2022).

Functional stability is a striking characteristic of the Brazilian public service, originally conceived as a mechanism to protect civil servants from arbitrary dismissals and political pressures. Its purpose is to ensure the continuity and impersonality of public administration. However, while offering career security and predictability, stability can generate side effects, such as professional complacency and reduced engagement with self-development (Oliveira et al., 2021). This perspective, however, may disregard the complexity of organizational, institutional, and individual factors that influence behavior and performance in the public sector, highlighting the need for more in-depth and contextualized analyses.

Within the scope of municipal public service, this dilemma becomes even more evident. Municipalities, due to being closer to the population and having smaller administrative structures, face specific challenges regarding people management, especially concerning the motivation and continuous training of public servants (Chiavenato, 2014). The discussion about the efficiency of Public Administration and the role of functional stability justifies studies that address the controversies surrounding their impacts on the performance and development of public servants.

Motivation and self-development are essential factors for achieving efficient, innovative, and results-oriented public service (Bergue, 2019). Self-development, understood as the continuous pursuit of personal and professional improvement, depends on internal and external stimuli that encourage the public servant to reflect on their performance, develop new skills, and contribute more effectively to organizational performance (Silva et al., 2019).

The relevance of this discussion for municipal public management stems from the fact that municipalities are responsible for providing essential services, such as health, education, and social assistance, requiring qualified, committed, and continuously developing public servants. In this context, understanding how stability influences the motivation, performance, and self-development of public servants becomes fundamental for improving people management practices and, consequently, for enhancing the quality of services provided to the population. From a practical point of view, such understanding can support managers in formulating more effective strategies, based not only on the guarantee of stability but also on professional appreciation, recognition, and the implementation of mechanisms for continuous evaluation and development.

Despite the extensive theoretical discussion on stability and efficiency, a gap is observed in the literature regarding the integrated analysis of functional stability, motivation, and self-development, especially at the municipal level and based on empirical evidence. Thus, this study seeks to contribute to the advancement of the debate by proposing an approach that considers these dimensions in an articulated manner, broadening the understanding of the factors that effectively influence the performance of public servants.

Given this context, the present research aims to describe the perception of municipal public servants about the relationship between functional stability, self-development, and professional performance, identifying how these servants perceive the effects of stability on their motivation, professional development, and work performance.

2. Material and Methods

This research was characterized as a single case study, with a qualitative approach and applied nature. The central purpose was to achieve an in-depth understanding of the influence of functional stability on the self-development of municipal public servants. This methodological design allowed for the exploration of the phenomenon in its real context, seeking to detail the participants’ perceptions without direct researcher intervention, in line with the exploratory and descriptive nature of the study (Nielsen, Olivo e Morilhas, 2018).

The study was developed in two main stages. In the first, a comprehensive literature review was conducted, focused on the theoretical understanding of the central concepts of functional stability, motivation, and self-development. For this purpose, books, scientific articles, dissertations, and theses were analyzed. This initial stage was fundamental to grounding the theoretical framework of the research and supporting the development of the data collection instruments used in the subsequent phase.

In the second stage, the field research was conducted, with the objective of collecting primary data. Data collection occurred in a city hall located in a medium-sized municipality in the state of São Paulo, in person. In accordance with the ethical guidelines of the research, the name of the institution was not disclosed. A Human Resources manager and five permanent municipal public servants were selected to participate in the study.

The selection criteria for public servants included a minimum of five years of experience in public service, aiming to ensure that participants possessed sufficient experience to reflect on the impacts of functional stability on their professional trajectories and motivations. The selection process for the interviewees used indications and the researcher’s convenience, prioritizing the participants’ availability and accessibility for conducting the interviews.

The participants included five public servants and one HR manager. Among the public servants, one was male and four were female, with ages ranging from 35 to 53 years. The tenure in public service of these public servants ranged from 7.5 to 33 years. The positions held were Administrative Agent and Administrative Assistant. The HR manager, female, was 47 years old and had 20 years of experience as Municipal Secretary.

The data collection instrument consisted of semi-structured interviews, developed based on the concepts identified in the literature review. Two distinct scripts were developed: one for public servants (Appendix 1) and another for the Human Resources manager (Appendix 2). Both scripts were organized into thematic blocks, covering professional trajectory, perception of job stability, motivation, development opportunities, and challenges faced.

The interviews were conducted individually and in person, lasting approximately 25 to 40 minutes each. All conversations were previously authorized by the participants, ensuring the voluntariness of participation. To ensure the fidelity of the information, the interviews were recorded in audio and subsequently submitted to full transcription, constituting the data corpus for analysis.

The obtained data were submitted to content analysis, using the thematic analysis technique. This analytical process encompassed the stages of floating reading, coding, categorization, and data interpretation. The objective was to identify categories, patterns, and relationships between the studied themes, seeking to understand how functional stability relates to the motivation and self-development of municipal servers.

To increase the reliability of the results, triangulation of sources was performed, confronting the collected empirical evidence with the established theoretical framework. This procedure aimed to deepen the contextualized understanding of the phenomenon. Additionally, all data rigorously adhered to the ethical principles governing research with human beings, ensuring anonymity, confidentiality of information, and the participation of servers through the signing of the Free and Informed Consent Term.

3. Results and Discussion

This section presents and analyzes the case study results, based on the perceptions of municipal public servants who participated in the research. The analysis was developed in conjunction with the literature review, organized into thematic axes, allowing for triangulation between the theoretical frameworks, the accounts of the interviewed public servants, and the contributions of the Human Resources manager. This procedure enabled a comprehensive understanding of the investigated phenomenon, as well as the identification of convergences and divergences between theory and the empirical reality observed in the context of municipal public administration.

The public servant and stability

Historically, functional stability emerged in Brazil as a response to administrative instability and the practices of clientelism, patronage, and political persecution that characterized public management until the early 20th century. Its legal introduction, which occurred in 1915 and was later incorporated into the Federal Constitution of 1934, consolidated the bureaucratic model of public administration. This model was based on the impersonality, legality, and professionalization of state bureaucracy, aiming to ensure administrative continuity and the quality of services provided to society (Machado et al., 2021).

The 1988 Federal Constitution reaffirmed stability as an institutional guarantee, establishing that public servants acquire this prerogative after three years of effective service, upon approval in a special performance evaluation. Constitutional Amendment No. 19/1998 reinforced this understanding, conditioning stability on functional performance and seeking to reconcile protection for the servant with the principle of administrative efficiency (Machado et al., 2021).

From an institutional point of view, stability’s central purpose is to protect the public servant against arbitrary dismissals and political interference, allowing the exercise of public functions with autonomy, impartiality, and focus on the collective interest. This institute contributes to the preservation of technical memory, organizational culture, and the continuity of public policies, especially in contexts of governmental alternations and institutional fragilities (Oliveira et al., 2021; Sousa; Macêdo, 2023; D’Avila, 2022).

The interviewed human resources manager reinforced the constitutional importance of stability, highlighting its role in ensuring impersonality, independence, suitability, transparency, and efficiency in public service. She advocated for the institution of a career public servant, stating that this protection is crucial for problem-solving and service continuity, and that outsourcing would not be the solution to the challenges of public administration.

Corroborating the authors’ perception, all interviewed public servants indicated that stability was one of the main attractions for entering public service. One participant, for example, mentioned that the pursuit of security and predictability for the future, including retirement, was a determining factor, especially in contrast to the instability observed in private companies.

However, stability is also criticized in the specialized literature. Some studies indicate that, once acquired, this guarantee can contribute to accommodation behaviors, demotivation, and reduction of individual effort, especially in the absence of effective performance evaluation and management mechanisms. Authors such as Fidelis (2016) and Poletto (2019) associate stability with low productivity, administrative sluggishness, and inefficiency in public service delivery, highlighting the need for people management policies that promote engagement and professional development (Oliveira et al., 2020).

When asked if they had encountered situations where a server should have lost stability due to low performance, three out of the five interviewees responded affirmatively. One server reported that, often, the problem is not the lack of good performance itself, but the server being allocated to an inadequate role, without an effective rotation selection process, which generates dissatisfaction and lower performance.

However, most of the interviewees stated that the occurrence of accommodation varies from person to person, depending on individual character. One civil servant highlighted that, in his experience, the staff he worked with was committed, as in a private company. The human resources manager also acknowledged that stability can interfere with the behavior of civil servants, pointing out a difference in work dynamics between the public sector and private enterprise.

On a social level, the image of the public servant is often associated with stigmas of inefficiency and low productivity, holding them responsible for structural and organizational problems within Public Administration (Ferreira et al., 2018). In contrast, the interviewed public servants reported feelings of security, satisfaction, and tranquility associated with the stability and conditions offered by a public career. One participant expressed that stability provides future goals and financial security, allowing for life planning without the worry of unemployment, unlike the CLT (Consolidação das Leis do Trabalho) regime.

Thus, public servant stability is understood as an essential legal and institutional instrument for administrative continuity, the protection of public interest, and the professionalization of the state bureaucracy. However, its effectiveness depends on the adoption of modern public management practices, capable of balancing functional security with the demand for performance, efficiency, and commitment to society, preventing it from becoming a factor of stagnation.

Self-development in the context of public service

Self-development in public service is understood as a continuous process of improving the civil servant’s competencies, skills, and attitudes, driven by both individual initiatives and institutional people management mechanisms. This concept gains relevance in light of criticisms of Public Administration’s efficiency, often associated with the legal regime of civil servants and functional guarantees, especially stability, which, according to part of the literature, can foster complacency and reduce the incentive for professional improvement (Sousa; Macêdo, 2023).

The perception of one of the interviewed servers (PE2) about stability was that it provides calmness to work, allowing the execution of a well-done service, without the rush and excessive pressure of a private company. For this server, stability did not generate complacency, but rather a sense of security that favored her performance and well-being in the work environment.

In this context, performance evaluation emerges as a crucial instrument for fostering the self-development of public servants. It is a mechanism that allows for the measurement of productivity, work quality, and adherence to the principles of Public Administration, with an emphasis on efficiency. According to the Federal Constitution of 1988, periodic performance evaluation is one of the grounds for dismissal for tenured civil servants, but its main purpose is to provide feedback, identify competency gaps, and guide training actions (Sousa; Macêdo, 2023).

The human resources manager corroborated the importance of performance evaluation, especially during the probationary period, as a tool to guide the employee and the administration itself on what needs to be improved. She emphasized that, although there is a legal framework for the dismissal of low-performing employees, the process requires material evidence and the right to defense, which differentiates it from the private sector.

According to Oliveira et al. (2020), the rigidity of the legal regime’s mechanisms can homogenize public servants with different levels of competence and performance, limiting initiative, creativity, and innovation. This scenario discourages continuous improvement and the recognition of individual merit. This perception was confirmed by the public servants, who pointed to political interference and the lack of meritocracy as barriers, with reports of “political hangers-on” and appreciation based on “knowledge of other, more important people” to the detriment of merit.

The human resources manager acknowledged the peculiarity of the public sector, where the “political world” can lead outsiders to assume leadership positions, even if they lack the technical skills of more experienced civil servants. However, she emphasized the importance of civil servants being proactive, studying, and continuously updating themselves, not limiting themselves solely to the formal duties of their positions.

Despite the limitations and slowness, all interviewed servers reported having space to be innovative and creative in their roles. One server (PE1) described the process as “slow”, but possible, depending on external factors such as technological deficiencies, authorizations, and legislative analyses, indicating that innovation does not depend solely on individual initiative, but on an institutional arrangement.

In response to these limitations, the link between periodic performance appraisal and the principle of efficiency is pointed out as a way to stimulate professional development. Poletto (2019) suggests that continuous evaluation inhibits lazy behaviors and encourages commitment to results. However, the interviewees, while recognizing the potential of evaluation to prevent complacency and improve performance, judged the existing processes as somewhat ineffective.

Motivation and public servants

Workplace motivation is a complex phenomenon, predominantly intrinsic, related to individual needs, values, beliefs, and expectations. Although it cannot be imposed externally, it is influenced by organizational conditions that favor engagement and satisfaction in performing work activities. In this sense, motivation results from the dynamic interaction between factors internal to the individual and external stimuli provided by the work environment, with organizations responsible for creating favorable conditions for this process to develop positively (Machado et al., 2021; Estevão, 2022; Bichett; Vargas, 2021).

The human resources manager reported the difficulty in finding ways to motivate municipal employees and convert this motivation into job satisfaction. She mentioned benefits such as annual adjustment, Length of Service Bonus (APS), career plan, meal allowance, and health plan, but noted that employees often link appreciation solely to salary increases, which dissipate quickly. The manager seeks to instill the spirit that knowledge and personal development are sources of intrinsic satisfaction.

In agreement with Ferreira et al. (2018), all interviewees pointed to remuneration as the main factor of their motivation. One server (PE2) expressed that, in a scenario of high cost of living, good remuneration is essential to have a dignified and peaceful life. This perspective reinforces Herzberg’s Two-Factor Theory, which distinguishes hygienic factors (such as remuneration and stability) that prevent dissatisfaction, but do not necessarily generate lasting motivation.

Although many servers report professional fulfillment in the exercise of their duties, the absence of adequate working conditions, resources, and basic equipment requires additional efforts to maintain service quality, generating overload, physical and emotional exhaustion, with negative impacts on motivation and performance (Ferreira et al., 2018). Four out of five servers expressed that the work environment, interpersonal relationships, and recognition directly influence their motivation.

A server (PE2) exemplified that a good relationship with colleagues is fundamental for well-being at work, as the absence of a harmonious environment can make daily life unsatisfactory. The human resources manager, although emphasizing individual responsibility for behavior, acknowledged that an unfair work environment or one poorly managed by leaders can hinder persistence and lead to discouragement, even for the most dedicated servers.

Additionally, three employees reported that the work affects their mental health and causes stress, feeling pressured without proper feedback. Another three interviewees stated they had already taken work home and used their own resources for their work tasks, evidencing the overload and precarious working conditions that contribute to demotivation.

Motivation in public service is still strongly impacted by recurrent structural problems, such as budgetary constraints, lack of strategic planning, political interference, clientelistic practices, technological scarcity, and equipment obsolescence. These factors compromise the organizational climate, the quality of services provided, and the well-being of public servants, contributing to demotivation and professional burnout (Estevão, 2022; D’Avila, 2022).

The human resources manager highlighted that the implementation of public policies depends on a series of legislations and clashes with budgetary issues, such as the legal limit of fiscal responsibility with payroll. This reality imposes difficulties for the creation of people management policies that could motivate and develop public servants, requiring very careful planning.

Herzberg’s Two-Factor Theory distinguishes between hygiene factors, associated with preventing dissatisfaction (such as stability, remuneration, and working conditions), and motivational factors, related to satisfaction and engagement (such as achievement, recognition, responsibility, and professional growth). Empirical evidence indicates that, although hygiene factors are essential for reducing dissatisfaction, they are not sufficient to promote lasting motivation, making it essential to strengthen the intrinsic factors linked to the content of the work (Estevão, 2022; Ferreira et al., 2018; Bichett; Vargas, 2021).

Despite structural and institutional limitations, many public servants demonstrated high commitment to their duties, often extrapolating their formal attributions to ensure the continuity and quality of public services. This indicates that demotivation stems more from the absence of adequate conditions and institutional stimuli than from a lack of individual effort (Ferreira et al., 2018). One public servant (PE3) emphasized that, regardless of the sector, it is necessary to deliver the best, and that stability should not lead to complacency.

To improve performance and motivation, servers suggested improvements such as creating channels for their opinions and suggestions to be heard, promoting greater dynamism and participation (PE1). Another server (PE3) pointed out the need for training, clearer and more transparent workflows, and salary improvement, although he also highlighted individual responsibility in seeking improvement and not falling into the “comfort zone”.

The human resources manager pointed out as good practices for more strategic people management the modernization and equipping of public service with new technologies, which are often neglected. She emphasized the importance of continuous training and development, and the need for managers to understand processes and teams, acting with empathy to align tools, managers, and servers for the sake of efficient and quality public service.

Regarding strengthening the culture of learning and continuous improvement, the human resources manager highlighted the continuous investment in the people management department. The intention is to implement a training platform, similar to ENAP, that offers training modules for employees from the moment they join, aiming to strengthen long-term professional development and promote a culture of continuous learning within the institution.

Thus, public servant motivation must be understood as a multidimensional phenomenon, involving individual, organizational, and institutional factors. Professional appreciation, recognition, development opportunities, participation in decision-making, and improvement of working conditions are essential to promote greater engagement, satisfaction, and performance. Therefore, people management policies that integrate stability, merit, development, and recognition become fundamental to strengthen motivation and efficiency in public service (Machado et al., 2021; Oliveira et al., 2021; Oliveira et al., 2020; D’Avila, 2022; Estevão, 2022; Ferreira et al., 2018 and Bichett; Vargas, 2021).

In summary, the research results indicate that functional stability plays a relevant role as a mechanism for institutional security and protection, favoring administrative autonomy and continuity, and is an attractive factor for entering public service. However, it was not shown to be the sole or determining factor for employee performance or demotivation. It was found that factors such as working conditions, recognition, growth opportunities, and people management practices had a greater influence on motivation and self-development, with demotivation being more associated with organizational and structural failures than with stability itself, highlighting the multifactorial complexity of the relationship between these elements.

4. Conclusion

This study sought to analyze the influence of functional stability on the self-development and professional performance of municipal public servants, investigating whether it operated as a factor of security and stimulus or of stagnation. It was found that stability plays a crucial role as a mechanism of institutional security and protection, being a significant attraction for entering public service and favoring administrative autonomy and continuity. However, the results indicated that stability, in isolation, did not prove to be the determining factor for the performance or demotivation of public servants. It was observed that motivation and self-development are more strongly influenced by adequate working conditions, recognition, growth opportunities, and effective people management practices. Demotivation, in turn, was associated with organizational and structural failures, not with stability itself, evidencing the commitment of public servants even in the face of adversity. Thus, the study contributes by demonstrating that functional stability, although essential, does not compromise efficiency when integrated with strategic people management that values merit and continuous development.

Despite the findings, the study acknowledges limitations arising from the methodological design, such as the case analysis in a single medium-sized municipality, which restricts the generalization of results. The perception of ineffectiveness in performance evaluation processes and the rigidity of the legal regime mechanisms were also identified as obstacles to self-development and innovation. For future studies, it is suggested to conduct comparative research with larger samples, covering different municipalities, careers, and levels of government. Such an approach could deepen the understanding of the nuances in the relationship between stability, motivation, and performance, allowing for the identification of patterns and particularities in various organizational and institutional contexts, and consolidating a culture of continuous learning and improvement in public administration.

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