Jointly developed by the IEJ and the East Cape Agricultural Research Project (ECARP), this wide-ranging and extensive working paper explores the challenges and opportunities for a just transition in South Africa’s food system, focusing on the beef industry. It examines the prevailing architecture, power dynamics, and policy frameworks through literature review, industry documents, and interviews with key stakeholders. The learnings from the focus on beef production highlight the need for a transition that addresses social inequalities, improves working conditions, enhances resilience to climate change, and seeks to achieve and balance multiple objectives rather than a singular pursuit of growth.
The need for a just transition
South Africa’s food system exhibits stark inequalities, such as food insecurity, malnutrition, and precarious labour conditions. With agriculture contributing significantly to climate change and being vulnerable to its impacts, a just transition is essential. This involves reducing ecological impacts, increasing resilience, and addressing socio-economic inequalities.
The beef with cattle and climate change
Cattle and beef production is a key case study due to its intersection with climate change and its role in providing jobs and livelihoods. While livestock are major global emissions sources, beef production is vital for South African employment. Policies for a just transition must balance ecological considerations with socio-economic needs.
The system of provision for beef
South Africa ranks as the 11th largest beef producer globally, with high per capita consumption. However, this masks deep inequalities. The beef system features a dichotomy between large-scale commercial production and smallholder farming, reflecting broader agrarian inequalities.
Inequality and livelihoods in the beef industry
Farm workers in the beef industry face low wages and insecure livelihoods, exacerbated by their lack of bargaining power. Similarly, smallholder farmers struggle with market access and productivity, compounded by limited resources and infrastructure.
Environmental dimensions of the system of provision
Intensive beef production in South Africa has significant ecological impacts, particularly regarding water and grain use for animal feed. Climate change further affects cattle health, impacting food security and household incomes. Wealth disparities among farmers influence their adaptive capacities, highlighting the need for equitable policy interventions.
A just transition in the beef system of provision
The beef industry lacks a coordinated response to climate change. While some practices like regenerative grazing show promise, they often overlook labour conditions. A market-led growth strategy fails to address deep-rooted inequalities and ecological concerns.
Challenges for a food system just transition
The beef and cattle system’s dynamics highlight challenges such as market-centred policies, entrenched power relations, and labour market structures. Addressing these issues requires strategic interventions to shift momentum towards a just transition.
Opportunities for a just transition
Identifying challenges also reveals opportunities for action. Enhancing connections across civil society, advocating for transformative policies, and shifting narratives within the food system are crucial steps. Deepening knowledge and practice can further support a just transition.
By addressing these opportunities and challenges, South Africa can move towards a more equitable and sustainable food system, ensuring a just transition for all stakeholders in the beef industry and beyond.
About the authors
- Dr Andrew Bennie is the Climate Policy and Food Systems Senior Researcher at the IEJ.
- Dr Lalitha Naidoo is the Director of ECARP.
- Dr Andrew Bowman is a Senior Lecturer in the School of Social and Political Science at the University of Edinburgh.
- Asandi Sandi is the Programmes Manager at ECARP.
Amaarah is a Junior Programme Officer in the Rethinking Economics for Africa project. She is currently studying towards her Masters in Applied Development Economics at Wits University. 
Dr James Musonda is the Senior Researcher on the Just Energy Transition at the IEJ. He is also the Principal Investigator for the Just Energy Transition: Localisation, Decent Work, SMMEs, and Sustainable Livelihoods project, covering South Africa, Ghana, and Kenya.
Dr Basani Baloyi is a Co-Programme Director at the IEJ. She is a feminist, development economist and activist. She gained her research experience while working on industrial policy issues in academia, at the Centre For Competition, Regulation and Economic Development (CCRED) and Corporate Strategy and Industrial Development (CSID) Unit.
Dr Andrew Bennie is Senior Researcher in Climate Policy and Food Systems at the IEJ. He has extensive background in academic and civil society research, organising, and activism. Andrew has an MA in Development and Environmental Sociology, and a PhD in Sociology on food politics, the agrarian question, and collective action in South Africa, both from the University of the Witwatersrand.
Juhi holds a Bachelor of Arts degree in International Relations and Sociology from Wits University and an Honours degree in Development Studies from the University of Cape Town. Her current research focus is on social care regimes in the South African context, with a particular focus on state responses to Early Childhood Development and Long-Term Care for older persons during the COVID-19 pandemic. Her other research areas include feminist economics, worlds of work and the care economy.
Bandile Ngidi is the Programme Officer for Rethinking Economics for Africa. Bandile has previously worked at the National Minimum Wage Research Initiative and Oxfam South Africa. He holds a Masters in Development Theory and Policy from Wits University. He joined the IEJ in August 2018. Bandile is currently working on incubating the Rethinking Economics for Africa movement (working with students, academics and broader civil society). 
Liso Mdutyana has a BCom in Philosophy and Economics, an Honours in Applied Development Economics, and a Masters in Applied Development Economics from Wits University. His areas of interest include political economy, labour markets, technology and work, and industrial policy. Through his work Liso aims to show the possibility and necessity of economic development that prioritises human wellbeing for everyone.
Joan Stott holds a Bachelor of Business Science in Economics and a Master’s in Economics from Rhodes University. She brings to the IEJ a wealth of experience in public finance management, policy development, institutional capacity-building, and advancing socioeconomic and fiscal justice.
Siyanda Baduza is a Junior Basic Income Researcher at IEJ. He holds a BSc in Economics and Mathematics, an Honours degree in Applied Development Economics, and is currently completing a Master’s degree in Applied Development Economics at the University of the Witwatersrand. Siyanda’s research focuses on the impacts of social grants on wellbeing, with a particular focus on the gendered dynamics of this impact. His interests include applied micro-economics, policy impact evaluation, labour markets, gender economics, and political economy. He is passionate about translating economic research into impactful policy.
Shikwane is a Junior Programme Officer at IEJ focusing on civil society support and global governance in the G20. He has a background in legal compliance, IT contracting and student activism. He holds degrees in Political Studies and International Relations, as well as an LLB, from the University of the Witwatersrand.
Dr Tsega is a Senior Researcher focusing on Women’s Economic Empowerment within the G20. She examines gender equity in economic policy, with expertise in food systems and small enterprise development. She holds a PhD in development studies from the University of the Western Cape, an MA in Development Economics, and degrees in Development Studies and Economics from UNISA and Addis Ababa University.
Nerissa is a G20 Junior Researcher at IEJ, focusing on advancing civil society priorities within the G20 framework. She bridges data, research, and policy to advance inclusive economic frameworks. She is completing a Master’s in Data Science (e-Science) at the University of the Witwatersrand, and holds Honours and Bachelor’s Degrees in International Relations with distinction. She has worked as a Research Fellow at SAIIA and a Visiting Research Fellow at Ipea in Brazil.
Dr Mzwanele is a Senior Researcher supporting South Africa’s G20 Sherpa with policy research. He holds a PhD in Economics from the University of Birmingham and an MSc from the University of the Witwatersrand. His work covers open macroeconomics, trade, finance, and higher education policy, and he has published widely on inequality, unemployment, household debt and higher education curriculum reform.
Kamal is the Project Lead for IEJ’s G20 work, focusing on sovereign debt and development finance. He holds a BComm (Hons) in Applied Development Economics from the University of the Witwatersrand and an Erasmus Mundus Joint Masters in Economic Policies for the Global Transition. He has worked with SCIS, UNCTAD and co-founded Rethinking Economics for Africa.