SouthSouthNorth (SSN), in collaboration with the Net Zero Tracker (NZT) Consortium, developed and tested an equity indicator to assess how climate targets set by major South African public and private entities incorporate equity and just transition principles. While South Africa’s climate strategies are still in development, the research highlighted gaps in equity integration, questioning how workers, communities and vulnerable groups are considered in the shift to a low-emissions economy.
South Africa’s transition to a low-emissions economy poses a significant challenge, affecting economic stability, social inclusion and development. Without deliberate equity measures, climate actions may inadvertently deepen existing inequalities. This research set out to evaluate the extent to which equity and just transition principles are integrated into the climate commitments of South African entities, thereby contributing to the enhancement of national mitigation targets and informing actions across government and industry.
Given its heavy reliance on coal, South Africa faces pressure to balance ambitious climate goals with the protection of vulnerable livelihoods. The introduction of the Just Energy Transition Partnership (JET-P) and the Climate Change Act 22 of 2024 (Climate Change Act) signals a promising shift in policy architecture; however, effective implementation will require clear equity frameworks. The private sector’s role is equally critical, yet many major companies lack robust targets or transparent disclosure on just transition measures.
The study developed and applied an expanded equity indicator within the existing NZT framework, tailored to the South African context. It assessed 50 leading public and private sector entities, including national departments, provincial governments, cities and companies, to examine the following:
- The strength of their climate mitigation targets
- The integration of equity and just transition principles
The findings aim to support the implementation of the Climate Change Act and inform the revision of South Africa’s 2025 Nationally Determined Contribution, while also contributing to global research focused on measuring fairness in climate action.
Key objectives included:
| 1. Developing and testing an equity indicator tailored to the South African context. |
| 2. Evaluating climate commitments from 50 public and private entities with a focus on the integration of equity and just transition principles. |
| 3. Assessing how social justice considerations are incorporated into climate action, identifying both best practices and areas for improvement. |
| 4. Providing actionable insights to strengthen climate accountability, with particular emphasis on equity and inclusive development. |
Methodology
The 50 public and private sector entities analysed comprised 21 government bodies at national, provincial and municipal levels and 29 corporations. They were assessed along two main dimensions:
- Emissions targets: their existence, scope and level of ambition
- Equity and just transition framing: commitments to support workers, communities and vulnerable groups
Data was collected from publicly available government policies, press statements and climate disclosures (as of October 2024). For equity indicators, each entity was evaluated on its commitment to a fair share of emissions reductions (contextualised within South Africa’s inequalities) and its inclusion of just transition provisions for socially and economically affected populations.
This methodological approach strengthens the NZT framework and offers a replicable model for tracking fairness and inclusiveness in climate action beyond South Africa.
Climate mitigation targets varied considerably across sectors, reflecting different levels of ambition and commitment. To facilitate comparative analysis, targets were grouped into categories (See Climate Mitigation Targets table), offering a detailed understanding of South Africa’s climate commitment landscape, emphasising progress and gaps.
Climate Mitigation Targets
| Category | Description |
| Net Zero | CO₂ emissions balanced by equivalent CO₂ removals. |
| Carbon Neutrality | Emissions offset via purchased carbon credits. |
| Carbon Negative | Removes more CO₂ than is emitted. |
| Climate Neutral | No net climate impact, considering all greenhouse gases, land use and broader climate effects. |
| Emissions Reduction | Actively reducing or limiting emissions released. |
| No Target | No formal climate mitigation goal has been set. |
| Reduction vs BAU | Cuts made relative to business-as-usual (BAU) emissions trajectories. |
Source: Equity & Just Transition Commitments in South Africa, Mbewe and Tredoux (2025)
Key findings
Equity target breakdown
The findings, as shown in Figure 1, presents a breakdown of references to either ‘fair share’ or ‘just transition’ within the climate commitments of South African public and private entities, as well as multinational companies (MNCs) operating in the country.
Climate and equity targets by public and private sectors
Source: Equity & Just Transition Commitments in South Africa, Mbewe and Tredoux (2025)
The study found the following:
- Disparities in climate progress are evident, as climate targets vary across South African provinces, cities and at the national level, with significant improvement in some areas and slower adoption in others.
- City leadership is a key driver, with urban centres such as Cape Town, Durban, Johannesburg and Pretoria leading climate action through ambitious net-zero targets and comprehensive just transition measures, often surpassing provincial frameworks.
- Provincial strategies are one-directional, positively influencing city-level policies but limiting the potential for coordinated, integrated action.
- Wealth is a driver of climate ambition, with more affluent provinces and cities formulating more ambitious climate strategies and just transition measures, while less affluent regions lag.
- Private sector commitments to a just transition are inconsistent across sectors, with some sectors exhibiting strong engagement, while others fall behind.
Inconsistency is a risk
While many entities commit to net zero, few explain how they will protect workers or support vulnerable groups through the transition.
Gaps and opportunities for improving South Africa’s climate targets
| Gaps | Opportunities |
| Equity language is vague or absent. | Define and track equity indicators consistently. |
| Support for weaker municipalities is limited. | Strengthen national coordination and resource flows. |
| Few firms disclose transition plans. | Make just transition disclosures standard practice. |
| Alignment between the public and private sectors is fragmented. | Use the Climate Change Act to align sectors under shared benchmarks. |
Key recommendations
| 1. Align and coordinate across government Use the Climate Change Act to align targets, plans and reporting across national, provincial and local levels. Strengthen coordination and knowledge-sharing to embed equity throughout. |
| 2. Clarify and monitor equity Develop a shared definition of equity across sectors and establish a national tracking mechanism to ensure consistency and transparency. Integrate equity indicators into climate monitoring, reporting and verification systems to enhance their effectiveness. |
| 3. Support under-resourced areas Direct financial and technical support to municipalities and provinces with limited capacity or low climate ambition. Prioritise regions most at risk of being left behind. |
| 4. Strengthen sectoral and company commitments Ensure all sectors adopt robust just transition strategies. Mandate companies, particularly MNCs, to disclosure how workers and communities will be supported. |
| 5. Raise target credibility Publish clear national guidelines for climate targets, with separate goals for emissions reductions and removals. Encourage Scope 3 emissions reporting to build trust and accountability. |
| 6. Leverage multilevel and regional partnerships Engage in domestic and regional partnerships to share best practices and foster collaboration. Test and refine the equity indicator across African contexts to support peer learning. |
Find out more
- The full report, Equity & Just Transition Commitments in South Africa.
- Contact: samson@southsouthnorth.org
