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Staff on trains and at schools, early years and family centres could be striking.
Members of unions RMT and Unison are in separate pay disputes with bosses.
Ballots open next week.
RMT is balloting staff at ScotRail and Caledonian Sleeper.
The union has been in pay negotiations with both companies who have, what they say, "both tabled well below inflation derisory offers that did not fully reward members for their hard work and dedication".
RMT general secretary Mick Lynch said that at the same time Transport Scotland was imposing a below inflation pay cap on RMT members.
He added: "It is ludicrous that the MSPs ultimately responsible for running these services were taking bumper pay rises whilst subjecting workers to significant hardship during a cost-of-living crisis."
It's proposing strike action and industrial action short of a strike in the form of a ban on overtime, rest day working and higher-grade duties.
Meanwhile Unison's action affects 38,000 staff and it says if workers back industrial action there could be mass walkouts across the country in early September.
The pay dispute, over what Unison says is an inadequate pay offer, affects all council workers in Scotland.
Unison Scotland local government committee chair Colette Hunter said: “Cosla’s lack of engagement on pay is bitterly disappointing.
“Local government workers firmly rejected Cosla’s offer in a consultation earlier in the year. There should have been talks way before now. It doesn’t show any great desire to resolve this dispute.
“Local government workers were due a pay rise at the beginning of April and are becoming increasingly disillusioned. They feel undervalued, and the delays will do nothing to fix the recruitment and retention issues we have within local government.”
Unison Scotland lead for local government David O’Connor said: “No one wants to take strike action. It’s always a last resort.
“Cosla’s proposal falls short of Unison's pay claim. It’s also less than the offer made to the lowest-paid local government staff south of the border.
“Workers are simply asking for a pay deal that addresses below-inflation pay settlements, which have reduced the value of staff wages by a quarter over the past 14 years. Council workers deserve to be paid wages reflecting their essential roles.”