Multiple Identities: Behind South Africa’s Approach to Climate Diplomacy

South Africa's climate policy is shaped by a conflict between its role as an international 'bridge-builder' and domestic structural barriers. While the government pursues a leadership role in multilateral forums and the BASIC group, domestic progress is hindered by a 'minerals-energy complex' dominated by coal-reliant entities like Eskom and Sasol, alongside urgent priorities to expand energy access and employment. The document highlights the diplomatic challenge of balancing relations with major emerging economies and other African nations while managing internal political and industrial pressures.

• South Africa acts as a "bridge-building" mediator in international climate negotiations, a role motivated by the post-apartheid government's desire to be viewed as a "responsible" international actor and a stable destination for foreign investment in Africa.
• Domestic implementation of climate policy is obstructed by a "minerals-energy complex" where powerful corporate interests and labour unions may oppose greenhouse gas emission reductions. Specifically, the state-owned utility Eskom has been "hostile, if not unsupportive, to renewable energy" and has pushed for coal-fired capacity expansion, such as the 4800 MW Medupi power station.
• The company Sasol is identified as the country's largest point-source of greenhouse gas emissions; its specialized operations in producing liquid fuels from coal make it particularly vulnerable to an economy-wide carbon price.
• There is a significant tension between South Africa's international pledges and its domestic realities. President Jacob Zuma's COP15 pledge to reduce emissions by 34% below "business as usual" by 2020 and 42% by 2025 was perceived domestically as "punching above its weight" given the urgent need to expand energy access and boost employment.
• South Africa's climate diplomacy is influenced by its alignment with the BASIC group (Brazil, India, and China), though it has shown a willingness to diverge from these partners. For example, at COP16, South Africa took a position on a legally binding outcome for Long Term Cooperative Action (LCA) that was opposed by China and India.
• South Africa's role as a "gateway" to Africa for the BRIC forum and its alignment with the BASIC group have caused tensions with other African nations, leading to accusations that the country betrayed African interests during the drafting of the Copenhagen Accord.
• Domestic climate governance is fragmented, with responsibility split between the Department of Environmental Affairs (DEA), the Treasury (which proposed carbon taxes), and the Department of Energy (which manages the Integrated Resource Plan).

APA

Atteridge, A. (2011). Multiple Identities: Behind South Africa’s Approach to Climate Diplomacy. Stockholm Environment Institute. https://www.sei.org/mediamanager/documents/Publications/Climate-mitigation-adaptation/sei_policy_brief_atteridge_southafrica.pdf

Chicago

Atteridge, Aaron. Multiple Identities: Behind South Africa’s Approach to Climate Diplomacy. Stockholm Environment Institute, 2011. https://www.sei.org/mediamanager/documents/Publications/Climate-mitigation-adaptation/sei_policy_brief_atteridge_southafrica.pdf.

Wikipedia

{{cite report |last1=Atteridge |first1=Aaron |title=Multiple Identities: Behind South Africa’s Approach to Climate Diplomacy |publisher=Stockholm Environment Institute |date=2011 |url=https://www.sei.org/mediamanager/documents/Publications/Climate-mitigation-adaptation/sei_policy_brief_atteridge_southafrica.pdf |access-date=17 August 2026 |via=Climate Insights Directory}}

BibTeX

@techreport{atteridge2011multiple, author = {Atteridge, Aaron}, title = {{Multiple Identities: Behind South Africa’s Approach to Climate Diplomacy}}, institution = {Stockholm Environment Institute}, year = {2011}, url = {https://www.sei.org/mediamanager/documents/Publications/Climate-mitigation-adaptation/sei_policy_brief_atteridge_southafrica.pdf}, urldate = {2026-08-17}, note = {Indexed by Climate Insights Directory} }