Agile Methods: Challenges in Implementation in Public Administration Companies’ Hiring in Organizational Practice

Marcia de Souza Batista Oliveira; Sarah de Oliveira Silva dos Santos

DOI: 10.22167/2675-6528-202603225

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

Organizational agility has become crucial in complex and volatile corporate environments, such as public administration, where constant changes demand rapid and efficient responses. The study aimed to analyze the challenges of applying agile methodology in a public administration organization, focusing on team maturity, hiring processes, use of metrics, and organizational factors related to value generation. To this end, a descriptive and qualitative approach was adopted, using a case study as the main research instrument, which allowed for a comparison between the literature on agile methodologies and their practical application. The analysis revealed that team maturity represented a challenge, requiring professionals to understand the agile method and its tools. Opportunities for process improvement were also identified, indicating that well-structured agile practices contributed to greater efficiency, sectoral alignment, and adaptation to changes. It was concluded that the effectiveness of agile methodology in public procurement transcended the mere implementation of practices and ceremonies, demanding the development of technical skills, institutional support, and integration between planning and execution, which reinforced the need for structural adjustments for its consolidation in the public sector.

Keywords: Organizational Agility; SAFe Framework; Team Maturity; Metrics.

1. Introduction

Digital transformation and the growing demand for efficiency in project management have driven public and private organizations to re-evaluate their traditional models for developing systemic solutions (Camargo and Ribas, 2019). This movement seeks greater adaptability, waste reduction, and improvement of organizational results in increasingly complex environments.

In this scenario, agile methodologies emerged as a promising alternative, promoting flexibility, team collaboration, and a continuous focus on value delivery. These methods value individuals and interactions, the incremental delivery of functional solutions, collaboration with stakeholders, and the ability to adapt to changes throughout the development cycle (Prilandnicki et al., 2014).

With the expansion of the adoption of these practices in large organizations, the Scaled Agile Framework (SAFe) has consolidated itself in the literature as a structured model for scaling agile methods in complex organizational environments (Lima and Oliveira, 2024). Its structure, roles, and ceremonies contribute to the alignment between strategy and execution, supporting processes of planning, execution, and continuous improvement (Scaled Agile, Inc., 2025).

However, the application of agile approaches in public administration faces additional challenges, arising from the legal, normative, and administrative requirements that govern the sector. Such conditions impose restrictions on governance, legal compliance, and the need for prior and detailed definition of the scope in bidding processes, impacting the flexibility inherent in agile practices (Kovags et al., 2019; Rosa and Pereira, 2021). The complexity of Brazilian tax legislation, with the issuance of approximately two tax regulations per business day and the alteration of about 96% of the norms after their promulgation, exemplifies the need for agility and adaptation (Bossa and Nobre, 2022).

Given this context, measuring the performance of teams and projects in agile environments becomes crucial. Studies indicate that adequate metrics enable systematic monitoring of deliverables and support decision-making, often aligned with management by objectives models (Niebuhr and Niebuhr, 2019; Filho, 2021). Furthermore, the continuous development of technical skills, training in agile practices, and the maintenance of adequate documentation are fundamental for consolidating the agile transformation (Baxter et al., 2023; Sutherland and Sutherland, 2014; Gonçalves et al., 2020).

This research was conducted in a large organization in the energy sector, which operates in a complex and highly regulated environment, especially in tax processes. The demand for agile solutions to manage multiple simultaneous tasks and limited resources in this context offered a conducive environment to investigate how these practices contribute to the efficient management of complex projects. The study sought to answer the question: what were the challenges inherent in applying the agile methodology in public institutions? In this sense, the present work aimed to analyze the challenges of applying the agile methodology in public administration organizations, with an emphasis on team maturity, contracting processes, the use of metrics, and organizational factors related to value generation.

2. Material and Methods

This research was characterized as descriptive, according to Gil (2024), who addresses the description of a phenomenon’s properties or the establishment of relationships between variables without direct researcher intervention. A qualitative approach was adopted, prioritizing the investigation of phenomena in their natural contexts, seeking to interpret the meanings, values, and perceptions of the subjects involved (Gil, 2024). This methodological choice aligned with the study’s objectives, allowing for the analysis of subjective elements of the investigated scenario.

The research design employed the case study strategy, which allowed for a detailed examination of a specific object to deepen knowledge about the phenomenon (Gil, 2024). The empirical object consisted of a systemic solution implemented in a large organization in the energy sector, located in the state of Rio de Janeiro. This institution operates in a complex and highly regulated environment, with significant demands in tax processes.

The analyzed systemic solution was developed to identify tax invoices generating credits for the Social Integration Program [PIS] and the Social Security Financing Contribution [COFINS], in inventory operations evaluated by the Average Cost method. The system sought to re-establish the traceability of fiscal documents, which presented recurring limitations due to the loss of item individualization in inventory. The analysis focused on an already implemented solution, in a context of multiple demands and limited resources.

The study population was composed of professionals involved in the development and management of the systemic solution. Participant selection occurred progressively, considering their direct relationship with the object of study and their organizational functions. Five participants were interviewed: two managers who acted as Product Owner [PO] and Product Manager [PM], a coordinator, and two analysts from the agile team, with experience in information technology and tax processes.

For data collection, the semi-structured interview technique was used. The questions were elaborated based on the theoretical framework on agile methodologies and the study objectives, covering aspects such as SAFe Framework roles, agile ceremonies, SAFe contributions to internal processes, scope definition and compatibility with contracting models, performance measurement methods, technical team competencies, obstacles, and improvement recommendations.

The interviews were conducted online, using the corporate platform Microsoft Teams. The meetings were previously scheduled with each participant and had an average duration of 40 minutes. The semi-structured script ensured the coverage of relevant topics, while also allowing for the exploration of specific details and perceptions of the interviewees regarding the application of agile methodology in the organization.

After collection, the interviews were transcribed and organized to facilitate content analysis. The data obtained were analyzed qualitatively, through classification into thematic categories. These categories were defined based on the literature and the research objectives, covering aspects such as team roles, agile ceremonies, contracts and scope, performance measurements, technical competence, and organizational challenges.

The present study was not submitted for review by a Research Ethics Committee [CEP]. This decision was based on Resolution No. 510, of April 2016, of the National Health Council, which, in its Article 1, sole paragraph, characterizes the research as an analysis of institutional practices and collection of participant perceptions without direct or indirect identification, not constituting research involving human beings for submission to the CEP/CONEP system.

3. Results and Discussion

The results obtained through the detailed interviews in this section were categorized according to the theoretical framework and the specific purposes of the study. The collected evidence allowed for the identification of trends and significant aspects of the teams’ daily lives, enabling a direct confrontation of the findings with the literature pertinent to the application of agile methodologies. In general, the analysis revealed that the main challenges resided not in the agile methodology itself, but in its contracting and operationalization within the specific organizational context of public administration, which imposed particularities on its implementation.

The inadequacy between traditional contractual models and agile principles, coupled with limitations in defining metrics, understanding roles, and conducting ceremonies, compromised the effectiveness of the approach and the expected value generation. Factors such as the need for greater team training, improvement of knowledge management, and strengthening of strategic alignment were identified as crucial elements for the consolidation of agile practices in the studied environment. Below, the findings are detailed by thematic categories, reflecting the proposed analysis axes.

Team Maturity

Regarding the definition and execution of agile roles, as investigated by question P1, research participants revealed that, although the SAFe Framework roles, such as Product Owner and Scrum Master, were formally established in the organizational structure, their practical application in the day-to-day projects faced significant challenges. A notable cultural resistance to the adoption of these new roles was observed, accompanied by adaptation difficulties and a tendency towards bureaucratization of functions, which diverged from the inherent flexibility of agile methodologies. This situation, characterized by workload overload and resource limitation, compromised the expected effectiveness of these roles, indicating the pressing need for organizational adjustments and continuous support to ensure internal alignment and clarity of responsibilities. Such findings highlight the complexity of implementing cultural changes in public environments, where structural rigidity can hinder the full adoption of new management practices (Kovags et al., 2019).

Regarding the technical competence of the teams, addressed by question P6, the results indicated that professionals faced challenges in both the availability of human resources and organizational processes. The scarcity of experienced professionals, coupled with the continuous need for training due to frequent contractual changes, directly impacted the pace and quality of deliveries. Although the hired developers demonstrated good technical capacity, they encountered barriers related to unfamiliarity with the organization’s internal processes and infrastructure limitations. The absence of formal records and robust documentation compromised traceability, clarity of project scope, and activity monitoring, hindering the preservation of organizational knowledge. This gap contrasts with the importance of useful and timely documentation, as highlighted by Prikladnicki et al. (2014), to avoid waste and unnecessary costs.

The low maturity of the teams in understanding their roles and in knowledge management limited the autonomy and collaboration expected in agile approaches, distancing the organization’s reality from the theory that advocates autonomous and transparent teams. Continuous training, through formal and informal training, workshops, and mentoring, proved to be a critical factor for team members to understand their responsibilities and agile practices. The provision of consultation sites and repositories for doubts also contributed to reducing uncertainties and accelerating team maturity, reinforcing that, without this support, agility would not achieve the promised return (Baxter et al., 2023).

Agile Ceremonies

Regarding agile ceremonies, investigated by question P2, participants indicated that, at times, the execution of these ceremonies focused excessively on the application of the method, diverting attention from the delivery of strategic value. This situation highlighted the need to align agile initiatives with the organization’s strategic objectives, ensuring that ceremonies served the purpose of generating value, and not just procedural compliance. The literature, such as Scaled Agile, Inc. (2025), emphasizes that ceremonies should be pillars for alignment, transparency, and continuous value delivery, which was not fully observed in practice.

It was also mentioned the desire to adopt leaner ceremonies, including the reduction of daily meetings, known as *dailies*. The proposal was that these meetings be held more briefly, lasting up to 15 minutes, to avoid meeting overload and preserve team productivity, as long as agile principles were maintained. This perception aligns with the pursuit of efficiency and waste elimination, fundamental principles of Lean and Agile, which aim to optimize processes and maximize value delivery (Scaled Agile, Inc., 2025).

SAFe Implementation and Organizational Factors

Regarding the perception of the implementation of the Scaled Agile Framework (SAFe) and its contributions to the company’s internal processes, addressed by question P3, respondents reported that the *framework* was conceptually positive, especially for fostering closer collaboration between business and development areas. However, they highlighted that its practical application was often perceived as cumbersome and complex, mainly due to the need for synchronization among multiple teams. Although the model presented good theoretical support, its adoption in large and highly complex organizations faced limitations, as several elements did not fully align with the institution’s operational reality.

In this context, SAFe was used by the company with significant customizations, made to meet the high workload and the particularities of internal culture and processes. This indicated that the *framework*, despite its intrinsic qualities, did not fully adapt to more complex corporate dynamics without substantial adaptations. The perception of overload of meetings and ceremonies, with an excessive focus on the method to the detriment of strategic value delivery, was also a relevant organizational factor. This situation contributed to low maturity in financial and budgetary management, with limited visibility over costs, which hampered decision-making and continuous alignment between planning and changes.

The need for greater organizational support to reduce parallel demands and improve strategic prioritization was a crucial point. The multiplicity of simultaneous demands and low cultural adherence to agile practices were significant obstacles that compromised delivery efficiency and the preservation of organizational knowledge. These organizational factors highlighted that the mere implementation of an agile *framework* is not enough; an organizational environment that supports and adapts it to its particularities is needed, as suggested by Lima and Oliveira (2024) when discussing the scalability of agile methods in complex environments.

Hiring and Scope

Regarding the scope definition in agile projects and compatibility with the global contracting model, as per question P4, respondents pointed out significant barriers to the effective adoption of agile practices. The predominance of contracts based on technical hours or rigidly defined scopes, although providing predictability and greater agility in the contracting process, limited innovation and learning initiatives. This rigidity reduced the capacity to explore solutions in contexts of greater uncertainty, a fundamental characteristic of agile methodologies that value adaptability to change (Prikladnicki et al., 2014).

There was also an indication of low maturity in budgetary monitoring, marked by a lack of visibility regarding costs, financial impacts, and value added by deliveries. This limitation hindered decision-making and made continuous alignment between planning and changes difficult, which is crucial for agile management. Therefore, the need for evolution in both contractual modeling and financial management was observed so that agile practices could consolidate more effectively within the organization. The incompatibility between traditional contractual models and the iterative nature of agile, combined with high turnover that impacted team continuity and the loss of organizational knowledge, reinforced the need for an evolution in contractual modeling to support scenarios of uncertainty and innovation, as pointed out by Rosa and Pereira (2021) and Brasil (2016).

Performance Metrics

Regarding the measurement method used in the contract linked to the case study, addressed by question P5, the interviewees assessed that the adoption of agile methods in regulated environments faced significant challenges. Legislation demanded objective proof of deliverables, while agile relied on increments that were not always fully tangible in the short term. This characteristic made it difficult to validate short development cycles with incremental deliveries (*sprints*) and the necessary measurement for acceptance and payment purposes, which generated a misalignment between traditional metrics of time and effort and the value or complexity of the deliveries.

Additionally, the estimation by *story points*, a relative measure of effort in agile tasks, presented high subjectivity, varying according to professionals’ experience and generating conflicts when there was insufficient technical domain to contribute effectively to discussions. Although *Planning Poker*, a collaborative estimation technique, has established itself as capable of generating more balanced estimates, respondents indicated that its use was limited and not widely disseminated among the teams. This low adoption reduced the possibility of alignment between the Product Owner, technical leaders, company teams, and contractors, favoring unilateral estimates and potential scoring distortions. The absence of clear value-added metrics, with excessive focus on deadlines and points to the detriment of quality, highlighted the need to improve agile estimation and management methods in the organization, aligning them with value generation, as proposed by Niebuhr and Niebuhr (2019) and Filho (2021) with OKRs.

Obstacles and Suggested Improvements

The interviewees pointed to significant obstacles (P7) to the application of agile methodology, including low maturity in financial monitoring and strategic alignment, lack of clarity on costs and value of deliverables, and rework resulting from short sprints. The multiplicity of simultaneous demands, low cultural adherence to agile practices, poorly defined contractual scopes, and, in contexts of high turnover, the absence of adequate documentation were factors that compromised the efficiency of deliveries and the preservation of organizational knowledge. These challenges, collectively, created an environment where agility could not be fully exploited, limiting its potential benefits.

As improvements (P8), participants suggested the continuous training of teams and managers, the enhancement of work practices with clear value metrics, and the reinforcement of financial governance, with review of effort and capacity. Also proposed were the reduction of parallel demands, the improvement of prioritization, the simplification of agile ceremonies, and the adoption of objective records. These recommendations aim for greater efficiency, alignment with the organizational context, and knowledge preservation, seeking to overcome the identified difficulties and consolidate the agile transformation in the organization.

In summary, the research results indicated that the effectiveness of the agile methodology in the organization of the public administration studied transcended the mere implementation of practices and ceremonies. The identified challenges were predominantly related to team maturity, the adequacy of hiring processes, clarity in the use of metrics, and organizational factors that impacted value generation. Overcoming these barriers demands continuous development of technical skills, robust institutional support, and effective integration between planning and execution, reinforcing the need for structural and cultural adjustments for the consolidation of agile practices in the public sector and for the study’s objectives to be fully achieved.

4. Conclusion

The present study aimed to analyze the challenges of applying agile methodology in a public administration organization, focusing on team maturity, contracting processes, use of metrics, and organizational factors related to value generation. It was found that team maturity represented a significant challenge, manifested by cultural resistance to new agile roles, workload overload, and scarcity of experienced professionals, which compromised autonomy and collaboration. It was observed that agile ceremonies sometimes diverted focus from strategic value delivery to mere procedural compliance, and the implementation of the Scaled Agile Framework (SAFe), although conceptually positive, was perceived as heavy and complex, requiring substantial customizations to fit the internal culture and high workload. It was also identified that traditional contractual models, based on rigid scopes or technical hours, limited innovation and adaptability, and measurement by *story points* showed subjectivity, with low adoption of collaborative estimation techniques, resulting in misalignment between metrics and the real value of deliveries. The main contribution of this work lies in identifying critical aspects that influence the adoption of agile methodology in the public sector, offering subsidies for the improvement of contractual, managerial, and organizational practices, reinforcing that the effectiveness of agility transcends the simple implementation of practices, demanding competence development, institutional support, and integration between planning and execution.

Among the research limitations, the concentration of the analysis on a single systemic development, in a specific organization, stands out, which restricts the generalization of the results to other contexts of public administration. Additionally, the number and profile of the participants did not represent the totality of the perceptions existing in the organization. For future studies, it is suggested to expand the analysis to different contexts of public administration, investigating strategies that favor the adaptation of contractual models, the use of metrics oriented towards value generation, and the strengthening of organizational maturity in the adoption of agile methodologies, in order to consolidate the agile transformation in the public sector.

Bibliographic References

Baxter, David; Dacre, Nicholas; Hao, Dong; Ceylan, Serkan. Institutional challenges in agile adoption: Evidence from a public sector IT project. Government Information Quarterly, v. 40, n. 4, p. 101858, 2023.https://doi.org/10.1016/j.giq.2023.101858

Bossa, Gisele; Nobre, Lionel. 2022. Descomplicando A Gestão Tributária na era digital. Thomson Reuters Brasil. São Paulo, SP, Brasil.

Brasil. 2016. Lei nº 13.303, de 30 de junho de 2016. Dispõe sobre o estatuto jurídico da empresa pública, da sociedade de economia mista e de suas subsidiárias, no âmbito da União, dos Estados, do Distrito Federal e dos Municípios. Diário Oficial da União, Brasília, 01 jul. 2016.

Camargo, Robson Alves de. Ribas, Thomaz. 2019. Gestão ágil de projetos. Saraiva Uni. São Paulo, SP, Brasil.

Filho, Emílio H. 2021.Os OKRs e as Métricas Exponenciais. Editora Alta Books. Rio de Janeiro, RJ, Brasil.

Gil, Antonio Carlos. 2024. Métodos e técnicas de pesquisa social. Editora Atlas. São Paulo, SP, Brasil.

Gonçalves, Laila Cristina Couto; Oliveira, Silvia Alves Assumpção de; Pacheco, Jéssica de Carvalho Amaral; Salume, Paula Karina. 2020. Competências requeridas em equipes de projetos ágeis: Um estudo de caso em uma Edtech. Revista de Gestão e Projetos – GeP, v. 11, n. 3, p. 72–93. DOI: 10.5585/gep.v11i3.18476. https://doi.org/10.5585/gep.v11i3.18476.

Kovags, Diego. Falchi, Fábio Luiz. Rivas, André Ronaldo. 2019. Analysis of the Utilization of Scrum Framework Effort Estimation Metrics in Federal Public Administration. In: 18th Brazilian Symposium on Sofware Quality Software [SBQS]. ACM, Fortaleza, CE, Brasil. https://doi.org/10.1145/3364641.3364645

Lima, Raquel Helena de. Oliveira, Ricardo Ramos de. 2024. Metodologia Ágil – Gestão de Mudanças Organizacionais: OKR [Objectives and Keys Results]. SAFe [Scaled Agile Framework]. e Monitoramento e Controle em Mudanças Organizacionais. Dialética Editora. São Paulo, SP, Brasil.

Niebuhr, Joel de Menezes e Niebuhr, Pedro de Menezes. 2018. Licitação e Contratos das Estatais. Editora Fórum Ltda. Belo Horizonte, MG, Brasil.

Prikladnicki, Rafael; Willi, Renato; Milani, Fabiano. 2014. Métodos ágeis para desenvolvimento de software. Bookman. Porto Alegre, RS, Brasil.

Rosa, Marcos Roque da. Pereira, Eliane Nascimento. 2021. Metodologias ágeis no contexto da administração pública: análise de estudos de caso de implementação ágil. Revista do Serviço Público [RSP], Brasília 72 (2) 479-497 abr/jun 2021. DOI: https://doi.org/10.21874/rsp.v72.i2.4310

Scaled Agile, Inc. 2025. SAFe Explained – Alcançando o Sucesso com Lean e Agile em Escala. [S.I.]: Scaled Agile, Inc., 2025. https://go.scaledagile.com/.

Sutherland, Jeff; Sutherland, J.J. 2019. Scrum: a arte de fazer o dobro do trabalho na metade do tempo. Sextante. Rio de Janeiro, RJ, Brasil.

Article originating from the Final Course Work of Specialization in Digital Business from the MBA USP/Esalq

To learn more about the course, click here and access the MBX Academy platform