Qualifications frameworks have emerged as global phenomenon in the context of a range of concerns and problems since the 1980s (African Union, 2020; Allais, 2014, 2018; Cedefop, 2015; Keevy & Chakroun, 2015). One is perceived skills mismatches that are believed to lead or to aggravate rising youth unemployment as well as other economic problems. Another is mobility within education and training systems. Here, rigid distinctions between academic and vocational education are perceived in many countries to be a blockage to movement within education and training, as well as an obstacle to the possibility of young people developing appropriate knowledge and skills for a changing world of work. Mobility also relates to the acceptance of qualifications across national borders. Qualifications frameworks are argued for in the name of labour market mobility. What is not in doubt is that all of these are genuine concerns faced by governments and policy makers. However, what is much less certain is whether or not qualifications frameworks have addressed all or indeed any of these concerns; the evidence has tended to be weak in this regard (Allais, 2014; Pilcher et al., 2015). The paper considers whether there is recent evidence to the contrary through a comprehensive scan of the literature to-date. The paper has three components to it: firstly, it attempts to understand why qualifications frameworks are seen as the solution to different problems relating to ways in which education and training systems link to work and economies. Secondly, it explores the kinds of evidence bases exist for the introduction of qualifications frameworks for these different problems. Finally, where qualifications frameworks don’t appear to be achieving the intentions, the paper considers what the explanations for this could be—is the tool being implemented inadequately or insufficiently, or is it the wrong tool for the problem at hand? For example, is there a lack of political will to support labour market mobility?

For the first strand of the paper focuses on understanding the nature of the frameworks that are in place and the stated impetus for the implementation of regional wide frameworks. The methodology involves analysis of policy documents and government reports from European and African countries. The selection is based on the fact that Europe has advanced in the development of qualifications frameworks as well as a regional framework, and that the European Centre for the Development of Vocational Training (Cedefop) has large data bases of the situation in different countries; African countries, by contrast are being advised, often by Europe-based donor and development partners, to introduce national and regional frameworks – and is currently exploring a continent wide framework. Outside of a few countries, African countries are in the very initial stages of introducing frameworks, and therefore much of the focus will be on intentions here. The second strand of the paper attempts to explore the basis for these policy assertions; that is the evidence that policy makers have used to determine that this tool is the appropriate one for solving the problems at hand. One aspect of this will be policy and evaluative reports, where they exist. Another will be a review of the most recent literature—is there any evidence beyond what policy makers are drawing on which either confirm the view that qualification frameworks can contribute to increased mobility or that suggest that these may not be having the desired impact. The third strand of the paper will provide in-depth analysis of specific cases in South Africa and the United Kingdom, with regard to employer requirements for worker knowledge and skills, labour mobility into the country, and mobility within the education and training system. This will reflect on the processes that underpin the ability of individuals to access the labour market across countries, including a focus on the role that qualification frameworks play in this regard (does it enable/become a barrier) and the role of regulatory institutions responsible for qualification frameworks in this regard. This will rely on the policy documents and reports as well as country level data pertaining to mobility.

The aim of this research is to distinguish between the genuine problems that exist with respect to mobility – or the lack of mobility - in the labour market and the tools that have been introduced to solve for these challenges. This distinction is important for the analysis undertaken by researchers with a view to supporting decision-making of both practitioners and policy makers. There are a range of challenges faced by education and training systems in the ways in which the different components interface with each other internally as well as with labour markets and the world of work. Both analysing and solving these problems is hampered by the aggressive promotion of policy mechanisms that claim to solve them, typically despite the absence of positive evidence of the extent to which these interventions are having the desired impact. This approach results in attention being diverted from the reality of the problems as well as limits the possibilities of developing more appropriate and targeted interventions. It also does not allow for an analysis that recognises the other interventions that are necessary for increased mobility - even if qualification frameworks are helpful. Nor does this analysis take into account the cases where mobility has been enhanced despite the absence of a qualification’s framework. This paper hopes to take a step towards untangling the relationship between qualifications frameworks as a proposed tool, and the nature of the problems they attempt to address.

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