The South Africa Productive Capacity Authority and Energy Security Act

              PARLIAMENT OF THE REPUBLIC OF SOUTH AFRICA
                  Seventh Parliament / 2026 Session

                  DRAFT BILL

INTRODUCED BY ________ (Member of the National Assembly)

CONCERNING THE ESTABLISHMENT OF THE SOUTH AFRICA PRODUCTIVE CAPACITY AUTHORITY AND THE PROVISION OF ENERGY SECURITY

                  A BILL FOR AN ACT

LONG TITLE

AN ACT OF THE PARLIAMENT OF THE REPUBLIC OF SOUTH AFRICA concerning the establishment of the South Africa Productive Capacity Authority ("SAPCA" or "the Authority") as a state-owned company (SOC Ltd) listed in Schedule 2 of the Public Finance Management Act, No. 1 of 1999, incorporated under the Companies Act, No. 71 of 2008, on the operational chassis pattern of Eskom Holdings SOC Ltd, the Industrial Development Corporation, and the Development Bank of Southern Africa; the establishment of the Civic Robot Corps of South Africa ("CRCSA") as a public-good labour body; the conferral of a Personal Productive Asset entitlement on every South African citizen ordinarily resident in the Republic, identified by the 13-digit South African ID number issued by the Department of Home Affairs, distributed through the South African Social Security Agency (SASSA) and the SASSA online portal at srd.sassa.gov.za; nine Provincial Delivery Units corresponding to the nine provinces; ENERGY SECURITY elevated as a co-equal Title coordinating with Eskom Holdings SOC Ltd, the National Transmission Company South Africa (NTCSA), the future independent Transmission System Operator, the Koeberg Nuclear Power Station long-term-operation programme (Unit 1 to 2044 and Unit 2 to 9 November 2045), the National Nuclear Regulator (NNR), the Renewable Energy Independent Power Producer Procurement Programme (REIPPPP), the December 2025 ministerial unbundling next-stage separation, and the Mpumalanga Just Transition coal-region workforce-absorption coordination; coordination with the Public Investment Corporation (PIC), the Industrial Development Corporation (IDC), the Development Bank of Southern Africa (DBSA), and the Land Bank for capital investment, credit guarantees, and equity co-investment; coordination with the Just Energy Transition Partnership (JETP) USD 8.5 billion International Partners Group commitment of November 2021 where consistent with the JETP Implementation Plan and the Integrated Resource Plan; explicit declination to establish any new South African personal income tax, corporate income tax, value-added tax, fuel levy, excise duty, customs duty, or other South African tax of any kind for the funding of the Authority; explicit preservation of the South African Reserve Bank's independent monetary policy mandate per Section 224 of the Constitution; explicit preservation of the Public Investment Corporation, the Industrial Development Corporation, the Development Bank of Southern Africa, the Land Bank, Eskom Holdings, the National Transmission Company South Africa, Koeberg, the National Nuclear Regulator, the South African Social Security Agency, the Department of Home Affairs, the South African Revenue Service, the South African Post Office, the Government Employees Pension Fund, the Unemployment Insurance Fund, the Compensation Fund, and every Chapter 9 institution; consistency with the Constitution of the Republic of South Africa, 1996, particularly Section 10 (human dignity), Section 22 (freedom of trade, occupation and profession), Section 26 (housing), Section 27 (health care, food, water and social security), Section 195 (basic values of public administration), Section 224 (Reserve Bank independence), Chapter 3 (cooperative government), and Chapter 13 (finance); consistency with the Freedom Charter (Kliptown, 26 June 1955), the Constitutional Court's Ubuntu jurisprudence from S v Makwanyane (1995) onward, the inauguration of President Nelson Mandela on 10 May 1994, the Soweto Uprising of 16 June 1976, the National Women's March of 9 August 1956, and the South African indigenous cooperative and stokvel tradition; and provision for connected purposes.

LEGISLATIVE ROUTING NOTE

This Draft Bill is for introduction in the National Assembly of the Republic of South Africa during the Seventh Parliament, 2026 Session, under the legislative-initiative provisions of Chapter 4 of the Constitution.

The Bill is tagged for processing under Section 76 of the Constitution (ordinary Bill affecting the provinces) given the provincial-coordination provisions in Title IV, and is accordingly referred for processing through both the National Assembly and the National Council of Provinces.

Suggested committee referrals following First Reading:

- Portfolio Committee on Finance + Standing Committee on Appropriations: lead committee for fiscal provisions, PIC + DBSA + IDC + Land Bank coordination, PFMA Schedule 2 listing, and Reserve Bank preservation - Portfolio Committee on Trade, Industry and Competition: for productive-capacity provisions, IDC industrial-finance coordination, and Section 22 entrepreneurial-freedom consistency - Portfolio Committee on Mineral Resources and Energy: for the Energy Security Title (Eskom + NTCSA + future independent TSO + Koeberg + NNR + REIPPPP + JETP coordination) - Portfolio Committee on Public Service and Administration: for the Schedule 2 SOC governance + Public Service Act consistency - Portfolio Committee on Cooperative Governance and Traditional Affairs (COGTA): for the provincial-coordination provisions - Portfolio Committee on Social Development: for the SASSA coordination and the Personal Productive Asset entitlement - Portfolio Committee on Home Affairs: for the 13-digit RSA ID distribution-chassis provisions - Joint Standing Committee on Defence: for the SANDF strategic- reserve coordination provisions - Portfolio Committee on Justice and Constitutional Development: for constitutional-consistency review (Section 22 + Section 27)

Funding Architecture: Four load-bearing channels: (a) National Revenue Fund annual appropriation starting with R10

    billion for FY2027/28;

(b) DBSA + IDC + Land Bank coordinated infrastructure, industrial,

    and agricultural finance up to R40 billion cumulative
    outstanding (Article 12);

(c) JETP USD 8.5 billion International Partners Group commitment

    coordination where consistent with the JETP Implementation
    Plan and the Integrated Resource Plan (Article 13);

(d) Operating revenue from at-cost sales of goods produced by the

    Authority and the Civic Robot Corps of South Africa.

No new South African taxation is established by this Act.

TITLE I - SHORT TITLE, FINDINGS, DECLARATIONS

ARTICLE 1. SHORT TITLE.

This Act may be cited as the "South Africa Productive Capacity Authority and Energy Security Act 2026."

ARTICLE 2. FINDINGS.

The Parliament finds:

FINDING 1 - SECTION 27 RIGHT TO SUFFICIENT FOOD, WATER, AND SOCIAL SECURITY. Section 27 of the Constitution of the Republic of South Africa, 1996, confers on everyone the right to have access to sufficient food and water and to social security. The state must take reasonable legislative and other measures, within its available resources, to achieve the progressive realisation of each of these rights. This Act, together with the sibling South Africa Food, Resource, and Commodity Assurance Act, is a legislative measure adopted within South African available resources to progressively realise the Section 27 rights.

FINDING 2 - THE FREEDOM CHARTER OF 1955 ANCHORS CITIZEN- SHAREHOLDER ENTITLEMENT. The Freedom Charter, adopted at the Congress of the People at Kliptown on 26 June 1955, declared: "The People Shall Share in the Country's Wealth!" Seventy years before this Act, the people of South Africa declared at Kliptown that they shall share in the country's wealth. The Personal Productive Asset entitlement under this Act gives that declaration its operational form on the institutional chassis that South Africa has built since 1994: the Public Investment Corporation, the Industrial Development Corporation, the Development Bank of Southern Africa, and the Land Bank.

FINDING 3 - PUBLIC INVESTMENT CORPORATION SCALE AND THE NATURAL SOUTH AFRICAN SOVEREIGN-ASSET CHASSIS. The Public Investment Corporation (PIC) holds R3.05 trillion in assets under management as of 31 March 2025 (up 13.18 percent year on year per the PIC SOC Ltd 2024/25 Annual Report). The PIC is wholly state-owned, manages the Government Employees Pension Fund (the largest pension fund in Africa), and has paid sustained returns to the South African public-service workforce for over a century. The PIC is the indigenous South African sovereign-asset chassis at the scale required to anchor the Authority's Capital Reserve and the annual Productive Capacity Dividend distribution.

FINDING 4 - INDUSTRIAL DEVELOPMENT CORPORATION 85-YEAR TRACK RECORD. The Industrial Development Corporation (IDC), established by Act of Parliament in 1940, celebrated 85 years of operation in 2025. The IDC's mandate is "inclusive and sustainable employment-creating industrialisation in South Africa and the region." The 85-year operational record makes the IDC the natural South African indigenous industrial-finance partner for the Authority's Civic Robot Corps deployment, replication-threshold robotic manufacturing equipment procurement, and at-cost manufacturing operations.

FINDING 5 - DEVELOPMENT BANK OF SOUTHERN AFRICA AS INFRASTRUCTURE PARTNER. The Development Bank of Southern Africa (DBSA), restructured post-1994 under the DBSA Act, No. 13 of 1997, has over four decades of South African infrastructure-finance operational evidence. The DBSA is the natural South African indigenous infrastructure-finance partner for the Authority's deployment infrastructure, energy-grid coordination, and regional distribution backbone.

FINDING 6 - DECEMBER 2025 ESKOM UNBUNDLING NEXT-STAGE SEPARATION. The Electricity Minister approved a revised Eskom unbundling strategy in December 2025 under which a new holding company is established with four subsidiaries: NEDCSA (National Electricity Distribution Company of South Africa) + Eskom Generation + NTCSA + a future independent Transmission System Operator that will become a State-Owned Company fully independent of NTCSA and Eskom Holdings (eskom.co.za 9 December 2025 ministerial-approval release; reglobal.org 30 March 2026; crown.co.za 12 December 2025). The Authority is coordinated with the post-December-2025 energy-sector architecture from inception.

FINDING 7 - KOEBERG LONG-TERM OPERATION TO 2044 AND 2045. The National Nuclear Regulator approved Koeberg Unit 1 long-term operation to 2044 and Koeberg Unit 2 long-term operation to 9 November 2045 (the latter on 5 November 2025). The Koeberg Nuclear Power Station has been operated safely by Eskom for 40 years and is Africa's only commercial nuclear power station. The Authority shall coordinate with Eskom and the NNR on Civic Robot Corps deployment-support services at Koeberg and on any future advanced-nuclear-energy elements that may be developed under South African energy policy.

FINDING 8 - JUST ENERGY TRANSITION PARTNERSHIP. The Just Energy Transition Partnership announced at COP 26 in November 2021 includes a USD 8.5 billion commitment from the International Partners Group (European Union, United States, United Kingdom, France, Germany) to South Africa's just transition. The IRP aims to decommission 12 GW of older fossil-fuel plants by 2030 + 8.5 GW of coal capacity by 2040. The Authority coordinates with the JETP framework as an accepted-partner instrument to which South Africa is party (parallel to Ukraine being party to the Ukraine Facility); not as an external imposition.

FINDING 9 - REPLICATION THRESHOLD AND SOUTH AFRICAN ENGINEERING CAPACITY. Self-replicating humanoid robotic manufacturing technology arrived at sub-USD-30,000 unit cost during the Q4 2025 through Q2 2026 inflection window per Universal Foundational Citation A. South Africa hosts engineering capacity at the University of Cape Town, the University of the Witwatersrand, the University of KwaZulu-Natal, Stellenbosch University, the University of Pretoria, the University of Johannesburg, the University of South Africa (UNISA), Rhodes University, the University of the Western Cape, the University of Fort Hare, the National Research Foundation (NRF), the Council for Scientific and Industrial Research (CSIR), and the Square Kilometre Array South Africa programme. South Africa is positioned to deploy replication-threshold technology under South African productive- capacity infrastructure.

FINDING 10 - HIERARCHY ITSELF KILLS (MARMOT QUARTET) AT SOUTH AFRICAN GRADIENT SCALE. Universal Foundational Citation C identifies the stress-physiology pathway by which basic-needs stratification produces population health damage. South Africa carries one of the steepest documented intra-national stratification gradients in the world (Gini coefficient persistently above 0.60). This translates directly into the Marmot pathway at population scale. The Authority's universal Personal Productive Asset entitlement removes the stratification at the layer at which the Marmot quartet finds most aggressive health-pathway damage, consistent with Section 27 of the Constitution.

FINDING 11 - MPUMALANGA JUST TRANSITION COAL-REGION WORKFORCE. The Mpumalanga coal-region workforce serving the Highveld coal power stations (Komati, Hendrina, Camden, Grootvlei, Kriel, Kusile, Lethabo, Majuba, Matla, Tutuka), the Limpopo Medupi and Matimba complexes, and the Free State Lethabo and KwaZulu-Natal Ingula complexes is the South African workforce most directly affected by the JETP coal-phase-down trajectory. The Civic Robot Corps of South Africa includes a Just Transition Service line (Article 19(b)) providing priority recruitment, wage-floor maintenance, training pipeline, and geographic reskilling for coal-region workers, in coordination with the National Union of Mineworkers (NUM), the Department of Mineral Resources and Energy, the Department of Higher Education and Training, and the nine Mpumalanga local municipalities.

FINDING 12 - FREEDOM CHARTER, MANDELA INAUGURATION, AND THE FORMATIVE MOMENTS OF SOUTH AFRICAN DEMOCRACY. The Freedom Charter (Kliptown, 26 June 1955), the Mandela inauguration as President (10 May 1994), the first post-apartheid democratic elections (27 April 1994 / Freedom Day), the Soweto Uprising (16 June 1976 / Youth Day), the National Women's March on the Union Buildings (9 August 1956 / National Women's Day), the Constitutional Court's Ubuntu jurisprudence from S v Makwanyane (1995) onward, and the indigenous cooperative and stokvel tradition formalised through the National Stokvels Association of South Africa since 1988 and the Co-operatives Act, No. 14 of 2005, anchor the Authority's Personal Productive Asset entitlement as the modern operational expression of the principle that the Republic is the common endeavour of its citizens.

ARTICLE 3. DECLARATIONS.

DECLARATION 1 - PERSONAL PRODUCTIVE ASSET ENTITLEMENT. The Parliament declares that every South African citizen ordinarily resident in the Republic of South Africa, identified by the 13-digit South African ID number issued by the Department of Home Affairs, shall enjoy as a matter of statutory right under this Act a Personal Productive Asset entitlement consisting of one non-transferable Productive Capacity Share, the annual distribution of dividends from inter-provincial pooled productive- capacity revenue, and access to at-cost basic-needs goods produced by the Civic Robot Corps of South Africa.

DECLARATION 2 - EXISTING SOUTH AFRICAN INSTITUTIONS UNAFFECTED. Nothing in this Act affects the establishment, functions, governance, or operation of:

(a) The South African Reserve Bank (SARB) and the monetary

    policy independence guaranteed under Section 224 of the
    Constitution;

(b) The Public Investment Corporation (PIC), the Government

    Employees Pension Fund (GEPF), the Unemployment Insurance
    Fund (UIF), and the Compensation Fund, beyond the
    coordination expressly authorised by Article 12;

(c) The Industrial Development Corporation (IDC), the Development

    Bank of Southern Africa (DBSA), and the Land Bank, beyond
    the coordination expressly authorised by Article 12;

(d) Eskom Holdings SOC Ltd, the National Transmission Company

    South Africa (NTCSA), the future independent Transmission
    System Operator, the Koeberg Nuclear Power Station, the
    National Nuclear Regulator (NNR), and other state-owned or
    state-controlled energy enterprises, beyond the coordination
    expressly authorised by Title VI;

(e) The South African Social Security Agency (SASSA), the

    Department of Home Affairs (DHA), the South African Revenue
    Service (SARS), Statistics South Africa, the Government
    Communication and Information System (GCIS), and other state
    agencies, beyond the coordination expressly authorised by
    this Act;

(f) The South African Post Office (SAPO), beyond the co-delivery

    coordination authorised by the sibling South Africa Food,
    Resource, and Commodity Assurance Act;

(g) The Just Energy Transition Partnership (JETP), beyond the

    coordination expressly authorised by Article 13;

(h) South African agricultural cooperatives, consumer

    cooperatives, NASASA-affiliated stokvels, and the indigenous
    South African cooperative tradition generally;

(i) FoodForward SA, the South African Red Cross Society (SARCS),

    and other accredited humanitarian organisations;

(j) The National Assembly, the National Council of Provinces, the

    Government of the Republic of South Africa, the President of
    the Republic, the Constitutional Court, the Supreme Court of
    Appeal, the Public Protector, the Auditor-General, the South
    African Human Rights Commission, the Commission for Gender
    Equality, the Independent Electoral Commission, the Office
    of the Chief Justice, and every other Chapter 9 institution.

DECLARATION 3 - NO NEW SOUTH AFRICAN TAXATION. No new South African personal income tax, corporate income tax, value-added tax, fuel levy, excise duty, customs duty, or other South African tax of any kind is established, extended, or increased by this Act for the funding of the Authority.

DECLARATION 4 - PROVINCIAL AND MUNICIPAL AUTONOMY RESPECTED. Nothing in this Act diminishes the constitutional and statutory autonomy of the nine provinces or the 257 South African municipalities. The Provincial Delivery Units under Title IV operate in coordination with, not in displacement of, provincial and municipal structures and the intergovernmental fiscal framework administered through the Financial and Fiscal Commission and the annual Division of Revenue Act.

DECLARATION 5 - ENTREPRENEURIAL FREEDOM AND PROPERTY RIGHTS PRESERVED. Consistent with Section 22 of the Constitution (freedom of trade, occupation, and profession) and Section 25 (property), this Act preserves the South African commercial market in full. The Authority operates as a state-owned company listed in Schedule 2 of the PFMA that contracts with private producers and distributors; it does not establish state ownership of the means of production. The Personal Productive Asset entitlement is a non-transferable property right enrolled at the 13-digit RSA ID, not a Section 25 expropriation provision. The South African private market for premium, luxury, custom, and specialty goods continues without restriction.

TITLE II - ESTABLISHMENT OF THE AUTHORITY

ARTICLE 4. ESTABLISHMENT.

(1) There is hereby established the South Africa Productive

    Capacity Authority ("SAPCA" or "the Authority") as a
    state-owned company (SOC Ltd) listed in Schedule 2 of the
    Public Finance Management Act, No. 1 of 1999 (Major Public
    Entities), and incorporated under the Companies Act, No. 71
    of 2008.

(2) The Authority's shareholder representative is the Minister

    in the Presidency responsible for the coordination of major
    public entities (a portfolio relocated into the Presidency
    on 30 June 2024 when the Ministry of Public Enterprises was
    eliminated), acting in concurrence with the Minister of
    Finance and the Minister of Trade, Industry and Competition.

(3) The Authority's headquarters shall be in Pretoria with

    operational offices in all nine provinces under Title IV.

ARTICLE 5. BOARD OF DIRECTORS.

(1) The Authority is governed by a Board of Directors of

    thirteen members, appointed in accordance with the
    Companies Act, No. 71 of 2008, the PFMA, and the Schedule 2
    SOC governance framework.

(2) Members include:

    (a) The Chairperson, appointed by the President of the
        Republic on the recommendation of Cabinet, with the
        concurrence of the National Assembly;
    (b) The Director-General of the Presidency, ex officio;
    (c) The Director-General of the National Treasury, ex
        officio;
    (d) The Director-General of the Department of Trade,
        Industry and Competition, ex officio;
    (e) The Chief Executive Officer of the Authority, ex
        officio;
    (f) Two members designated by the Public Investment
        Corporation Board as the standing interface between the
        Authority and the PIC;
    (g) One member designated by the IDC Board as the standing
        IDC interface;
    (h) One member designated by the DBSA Board as the standing
        DBSA interface;
    (i) One member designated by the Land Bank Board as the
        standing Land Bank interface;
    (j) Two members representing organised labour (the Congress
        of South African Trade Unions / COSATU, the Federation
        of Unions of South Africa / FEDUSA, the National Council
        of Trade Unions / NACTU, or the South African Federation
        of Trade Unions / SAFTU acting collectively);
    (k) One member representing the South African cooperative
        and stokvel sector through the National Stokvels
        Association of South Africa (NASASA) and the South
        African National Apex Cooperative (SANACO).

(3) The Board reflects the broader South African governance

    convention of multi-party stakeholder representation.

ARTICLE 6. MANAGEMENT.

(1) The Authority is managed by an Executive Committee of seven

    members, appointed by the Board in accordance with the
    Companies Act and the PFMA.

(2) The Executive Committee includes a Chief Executive Officer

    (CEO), a Chief Financial Officer (CFO), a Chief Operations
    Officer (COO), and four Deputy CEOs for: (i) Productive
    Capacity; (ii) Energy Security and Eskom Coordination;
    (iii) Provincial Delivery and Civic Robot Corps Operations;
    (iv) Finance, PIC + IDC + DBSA + Land Bank Coordination, and
    JETP coordination.

ARTICLE 7. POWERS OF THE AUTHORITY.

The Authority has the power to:

(a) Establish, capitalise, and govern nine Provincial Delivery

    Units under Article 16;

(b) Issue Productive Capacity Shares under Article 14; (c) Acquire, hold, manage, lease, sell, and dispose of

    property including replication-threshold robotic
    manufacturing equipment;

(d) Enter contracts with the Government, ministries, PIC, IDC,

    DBSA, Land Bank, Eskom Holdings, NTCSA, the future
    independent TSO, Koeberg, the NNR, South African
    municipalities, South African cooperatives, JETP partners,
    and private vendors;

(e) Coordinate with PIC, IDC, DBSA, and the Land Bank under

    Article 12 for credit guarantees, infrastructure finance,
    industrial finance, agricultural finance, and equity
    co-investment up to R40 billion cumulative outstanding;

(f) Coordinate with JETP under Article 13; (g) Distribute Productive Capacity Dividends under Article 15

    through the existing SASSA + 13-digit RSA ID + Department
    of Home Affairs Smart ID infrastructure;

(h) Charter the Civic Robot Corps of South Africa under Title V; (i) Coordinate with Eskom Holdings, NTCSA, the future TSO,

    Koeberg, the NNR, REIPPPP, and the Mpumalanga Just
    Transition framework under Title VI;

(j) Issue regulations and rules within the scope of its mandate

    consistent with the Companies Act, the PFMA, and the King
    Code on Corporate Governance.

TITLE III - FUNDING ARCHITECTURE

ARTICLE 8. PRINCIPLES OF FUNDING.

Four load-bearing channels per the Legislative Routing Note; no new South African taxation. The Authority's funding architecture resolves the gradient-related health pathway documented in Universal Foundational Citation C (Marmot quartet) at South African population scale through universal at-cost commodity assurance under the sibling South Africa Food, Resource, and Commodity Assurance Act and through the Personal Productive Asset entitlement under this Act.

ARTICLE 9. NO NEW TAXATION.

No new South African personal income tax, corporate income tax, value-added tax, fuel levy, excise duty, customs duty, or other South African tax of any kind is established by this Act.

ARTICLE 10. INITIAL APPROPRIATION.

(1) For the financial year 2027/28 there is appropriated from

    the National Revenue Fund the sum of R10 billion for the
    establishment of the Authority, scaled to the South African
    population of approximately 63.10 million and recognising
    the established scale of South African major public
    entities (Eskom, Transnet, IDC, DBSA, PIC operate at
    cumulatively larger fiscal magnitudes).

(2) Subsequent annual appropriations shall be made in the

    ordinary annual Appropriation Act.

ARTICLE 11. STATE-SHAREHOLDER CONTRIBUTION.

The State of South Africa, represented by the Minister in the Presidency responsible for the coordination of major public entities, holds 100 percent of the issued share capital of the Authority on behalf of the South African public. State capital contributions and operational surpluses are retained for the statutory mandate per the PFMA and the Companies Act.

ARTICLE 12. PIC + IDC + DBSA + LAND BANK COORDINATION.

(1) The Authority and the Public Investment Corporation (PIC),

    the Industrial Development Corporation (IDC), the Development
    Bank of Southern Africa (DBSA), and the Land Bank shall enter
    Coordination Agreements within twelve months of the
    establishment of the Authority, providing for:

    (a) DBSA infrastructure project preparation and finance up
        to R20 billion cumulative outstanding;
    (b) IDC industrial-finance instruments up to R10 billion
        cumulative outstanding;
    (c) Land Bank agricultural-supply-chain finance up to R5
        billion cumulative outstanding;
    (d) PIC participation in the Authority's Capital Reserve
        and the Productive Capacity Dividend distribution
        mechanism up to R5 billion cumulative co-investment.

(2) Coordination shall be consistent with the existing PIC, IDC,

    DBSA, and Land Bank mandates and operational strategies.

(3) The Authority does not direct, control, or modify any PIC,

    IDC, DBSA, or Land Bank financing decision. Coordination
    under this Article is by agreement only.

ARTICLE 13. JUST ENERGY TRANSITION PARTNERSHIP COORDINATION.

(1) The Authority may receive co-financing from the Just Energy

    Transition Partnership (JETP) USD 8.5 billion International
    Partners Group commitment where consistent with the JETP
    Implementation Plan and the Integrated Resource Plan.

(2) JETP coordination is by accepted-partner instrument

    (parallel to Ukraine being party to the Ukraine Facility);
    it is not an external imposition.

(3) The Authority does not displace any existing JETP investment

    or reform line.

ARTICLE 14. PRODUCTIVE CAPACITY SHARES.

(1) The Authority shall issue Productive Capacity Shares as

    follows:

    (a) ONE Productive Capacity Share to every South African
        citizen ordinarily resident in the Republic on the
        effective date of this Act, identified by 13-digit RSA
        ID;

    (b) ONE Productive Capacity Share to every person
        registered as a South African citizen with the
        Department of Home Affairs thereafter (birth registration,
        naturalisation, or other lawful acquisition of
        citizenship);

    (c) Foreign nationals lawfully resident in South Africa
        under the Refugees Act, No. 130 of 1998, or under the
        Immigration Act, No. 13 of 2002, who hold an identifier
        issued by the Department of Home Affairs, may, by
        regulation, be enrolled at the at-cost commodity tier
        without a Productive Capacity Share.

(2) Productive Capacity Shares are non-transferable.

(3) ONE PERSON, ONE SHARE.

ARTICLE 15. ANNUAL DISTRIBUTION.

(1) Seventy per cent (70 percent) of all productive-capacity

    revenue received by each Provincial Delivery Unit shall be
    remitted to the Authority for inter-provincial pooling. Each
    Delivery Unit retains the remaining thirty per cent (30
    percent) for province-level operations.

(2) Seventy-five per cent (75 percent) of the inter-provincial

    pool shall be distributed annually to Productive Capacity
    Shareholders, equally per share, through the SASSA
    distribution infrastructure with payment through any
    SARB-licensed South African bank elected by the shareholder
    or through SASSA Gold card / payment-channel infrastructure
    where the shareholder is already enrolled.

(3) The remaining twenty-five per cent (25 percent) is retained

    by the Authority for operating reserves, DBSA + IDC + Land
    Bank repayment, and expansion capital.

(4) The annual distribution shall be made on a date determined

    by the Authority with a target date of 27 April (Freedom
    Day) in each year, symbolically connecting the Personal
    Productive Asset entitlement to the founding of post-
    apartheid democratic South Africa.

TITLE IV - PROVINCIAL DELIVERY UNITS

ARTICLE 16. PROVINCIAL DELIVERY UNITS.

(1) The Authority establishes Provincial Delivery Units in each

    of the nine provinces: Eastern Cape, Free State, Gauteng,
    KwaZulu-Natal, Limpopo, Mpumalanga, Northern Cape, North
    West, and Western Cape.

(2) Each Provincial Delivery Unit is administered by a Provincial

    Director appointed by the Authority Board in concurrence
    with the Premier of the province.

(3) Priority deployment of Civic Robot Corps facilities is

    targeted to the Mpumalanga Highveld coal-region municipalities
    (Highveld, Komati, Hendrina, Camden, Grootvlei, Kriel, Kusile,
    Lethabo, Majuba, Matla, Tutuka), the Limpopo Medupi and
    Matimba complex catchment areas, the Eastern Cape, KwaZulu-
    Natal, and Limpopo high-food-insecurity municipalities, and
    the metropolitan townships of Soweto, Alexandra, Khayelitsha,
    Mitchells Plain, KwaMashu, Umlazi, Mamelodi, Atteridgeville,
    Tembisa, Diepsloot, and Orange Farm.

TITLE V - CIVIC ROBOT CORPS OF SOUTH AFRICA

ARTICLE 17. ESTABLISHMENT.

(1) There is hereby established within the Authority a public-

    good labour body to be known as the "Civic Robot Corps of
    South Africa" ("CRCSA" or "the Corps").

(2) The Corps operates replication-threshold robotic manufacturing

    equipment for at-cost basic-needs goods production and other
    service lines.

ARTICLE 18. SERVICE LINES.

The Corps shall operate:

(a) At-cost goods production and distribution (coordinating with

    the South African Food, Resource, and Commodity Assurance
    Programme under the sibling South Africa Food, Resource, and
    Commodity Assurance Act, and with FoodForward SA + the South
    African Red Cross Society + NASASA-affiliated stokvels for
    delivery partnership);

(b) Mpumalanga Just Transition coal-region workforce absorption

    (Article 19(b) priority recruitment for affected Highveld
    coal-region workers, with parallel coordination at the
    Limpopo Medupi and Matimba complexes and at any other
    affected coal-region community per the JETP Implementation
    Plan);

(c) Rural and remote-area distribution (coordinating with SAPO

    where it retains branch presence, with the SANDF strategic-
    reserve logistics network, and with the provincial road
    agencies);

(d) Coordination with the IDC + the dtic on South-African-built

    humanoid-robotic-platform manufacturing capability development
    and downstream deployment, including the South African
    automotive-industry ecosystem (Eastern Cape, Gauteng,
    KwaZulu-Natal), the Atlantis Special Economic Zone (Western
    Cape), and the Coega and East London Industrial Development
    Zones;

(e) Healthcare-supply-chain logistics coordination with the

    Department of Health, provincial health departments, the
    National Health Insurance framework rollout, the South African
    National Blood Service (SANBS), and the National Health
    Laboratory Service (NHLS);

(f) Energy-sector deployment coordination with Eskom Holdings,

    NTCSA, the future independent TSO, Koeberg, REIPPPP
    independent power producers, and JETP-funded just-transition
    workforce programmes (see Title VI);

(g) Civil-defence and disaster-response logistics coordination

    with the Disaster Management Centre and SANDF given the
    South African exposure to flooding (KwaZulu-Natal April
    2022 and subsequent), drought (Western Cape Day Zero 2017-
    2018 and subsequent), and wildfire seasonal events;

(h) Strategic reserve management coordination with SANDF for

    national strategic reserves of basic-needs goods distributed
    across the nine provinces;

(i) Cooperative coordination with South African agricultural

    cooperatives, consumer cooperatives, and NASASA-affiliated
    stokvels under the Co-operatives Act, No. 14 of 2005, for
    community-scale at-cost distribution to communities where
    other distribution channels are uneven.

ARTICLE 19. HUMAN WORKFORCE.

(1) The Corps employs a human workforce of South African

    ordinarily-resident persons, with jurisdictional preference
    and explicit Mpumalanga coal-region and other affected-
    workforce recruitment priority under Finding 11.

(2) The Corps shall:

    (a) Maintain a wage floor of 120 percent of the South
        African national minimum wage (Sectoral Determination 9
        of the Department of Employment and Labour, as adjusted
        annually by ministerial determination);

    (b) Provide statutory employee contributions under the
        Unemployment Insurance Act, No. 63 of 2001 (UIF), the
        Compensation for Occupational Injuries and Diseases Act,
        No. 130 of 1993 (COIDA), and the Skills Development Levies
        Act, No. 9 of 1999;

    (c) Coordinate with the TVET college sector, the Sector
        Education and Training Authorities (SETAs), and the
        provincial Departments of Education and Training for
        apprenticeship pipelines;

    (d) Provide explicit pathways from Corps employment to the
        South African Public Service, the SANDF, and state-
        owned enterprises;

    (e) Honour the existing trade-union framework under the
        Labour Relations Act, No. 66 of 1995, and recognise
        Corps-organising trade unions (likely affiliates of NUM,
        NUMSA, NEHAWU, SAMWU, and other COSATU / FEDUSA / NACTU
        / SAFTU federations).

TITLE VI - ENERGY SECURITY AND ESKOM COORDINATION

ARTICLE 20. ENERGY SECURITY AS A CO-EQUAL MANDATE.

The Parliament declares that ENERGY SECURITY of South Africa is a co-equal Title of the Authority's mandate alongside productive capacity and the Civic Robot Corps. The structural reasons are:

(a) The Eskom recovery trajectory from sustained loadshedding

    (2007-2024) into a more reliable supply (2024-2026) is
    incomplete; loadshedding events have continued sporadically
    through 2025-2026 and the December 2025 ministerial
    unbundling next-stage separation is the load-bearing reform.

(b) The Mpumalanga, Limpopo, and Free State coal-region workforce

    transition under JETP requires structured absorption
    instruments at the scale of the workforce involved.

(c) The Koeberg Nuclear Power Station long-term operation

    extensions (Unit 1 to 2044 and Unit 2 to 9 November 2045)
    require sustained Eskom + Civic Robot Corps deployment-
    support workforce coordination through 2045 and beyond.

(d) The REIPPPP pipeline (Bid Window 7 released 14 December

    2023, bids August 2024, 1,760 MW solicited, subsequent bid
    windows planned) requires coordination with the future
    independent TSO and with the Authority's productive-
    capacity rollout.

ARTICLE 21. ESKOM AND NTCSA COORDINATION.

(1) The Authority, Eskom Holdings SOC Ltd, and the National

    Transmission Company South Africa (NTCSA) shall enter
    Coordination Agreements within twelve months of the
    establishment of the Authority, providing for:

    (a) Corps-operated deployment and maintenance services for
        Eskom's electricity-generation portfolio;

    (b) Authority preference for procurement of long-term
        electricity from Eskom for Authority-operated productive-
        capacity facilities, providing Eskom with anchor-offtake
        commitment supporting capacity-expansion and rehabilitation
        planning;

    (c) Coordination on the South African renewable-energy
        build-out, including REIPPPP Bid Windows, the Risk
        Mitigation Independent Power Producer Procurement
        Programme (RMIPPPP), and the Embedded Generation
        Investment Programme.

(2) The Authority does not direct, control, or modify Eskom,

    NTCSA, or the future independent TSO's operations.

ARTICLE 22. FUTURE INDEPENDENT TRANSMISSION SYSTEM OPERATOR.

(1) The Authority recognises the December 2025 ministerial

    next-stage-separation determination establishing a future
    independent Transmission System Operator (TSO) as a State-
    Owned Company fully independent of NTCSA and Eskom Holdings.

(2) Upon establishment of the independent TSO, the Authority

    enters a Coordination Agreement with the TSO for transparent
    Authority access to the transmission network and for
    Authority participation in the Market Operator's electricity
    trading consistent with the South African Electricity
    Regulation Act, No. 4 of 2006, and the Electricity Regulation
    Amendment Act, No. 38 of 2024.

ARTICLE 23. KOEBERG LONG-TERM OPERATION COORDINATION.

(1) The Authority and Eskom Holdings SOC Ltd shall coordinate

    on Civic Robot Corps deployment-support services at Koeberg
    Unit 1 (long-term operation to 2044) and Koeberg Unit 2
    (long-term operation to 9 November 2045 per the National
    Nuclear Regulator approval of 5 November 2025), including
    workforce-support, supplier-industry development, and
    training-pipeline integration with the University of Cape
    Town, Stellenbosch University, the Cape Peninsula University
    of Technology, and the South African Nuclear Energy
    Corporation (Necsa).

(2) Any subsequent advanced-nuclear-energy elements developed

    under South African energy policy shall be coordinated under
    the existing NNR framework and the Nuclear Energy Act, No.
    46 of 1999.

ARTICLE 24. MPUMALANGA JUST TRANSITION COORDINATION.

(1) The Authority shall coordinate with the Mpumalanga Just

    Transition framework, the Presidential Climate Commission,
    the Department of Mineral Resources and Energy, the
    Department of Forestry, Fisheries and the Environment, the
    Department of Higher Education and Training, the National
    Union of Mineworkers (NUM), the National Union of
    Metalworkers of South Africa (NUMSA), the Mpumalanga
    Provincial Government, and the affected local municipalities
    on:

    (a) Priority absorption of coal-region workers into Corps
        service per Article 19(b);

    (b) Geographic retention of skilled workforce in the
        affected coal regions through Corps deployment within
        Mpumalanga, Limpopo, and Free State;

    (c) Coordination with JETP Implementation Plan workforce
        programmes and with the South African Renewable Energy
        Masterplan (SAREM);

    (d) Continuation of wage-floor maintenance at 120 percent of
        the national minimum wage per Article 19(2)(a) during
        the transition period for any transitioning coal-region
        worker who elects Corps service.

ARTICLE 25. STRATEGIC RESERVES.

(1) The Authority shall maintain strategic reserves of basic-

    needs goods distributed across the nine provinces and the
    major metropolitan municipalities, sufficient to support
    South African resilience consistent with Department of
    Defence civil-defence planning.

(2) Strategic reserves are managed jointly with the SANDF and

    the Disaster Management Centre.

TITLE VII - IMPLEMENTATION PHASES

ARTICLE 26. FOUR-PHASE IMPLEMENTATION.

PHASE I - ESTABLISHMENT (Months 0-12). Authority established as Schedule 2 SOC; Board of Directors and Executive Committee appointed; nine Provincial Delivery Units seated; Productive Capacity Shares issued via the 13-digit RSA ID + SASSA infrastructure; PIC + IDC + DBSA + Land Bank Coordination Agreements signed.

PHASE II - INITIAL CORPS OPERATIONS (Months 12-36). Civic Robot Corps of South Africa commences operations in the priority provinces (Mpumalanga coal-region priority + Eastern Cape + KwaZulu-Natal + Limpopo high-food-insecurity priority + Gauteng and Western Cape metropolitan townships priority); Eskom + NTCSA Coordination Agreement signed; JETP coordination operational; DBSA + IDC + Land Bank lending up to R20 billion drawn.

PHASE III - SOUTH-AFRICA-WIDE OPERATIONS (Months 36-72). Corps operations extend to all nine provinces and all 257 municipalities; strategic reserves at scale; annual Productive Capacity Dividend in regular distribution on 27 April (Freedom Day); future independent Transmission System Operator Coordination Agreement signed upon TSO establishment.

PHASE IV - STEADY-STATE OPERATING POSTURE (Month 72 onward). Authority reaches steady-state. No sunset.

TITLE VIII - GENERAL PROVISIONS

ARTICLE 27. EFFECTIVE DATE.

(1) Articles 1 (Short Title), 3 (Declarations), and 28

    (Effective Date) take effect on the date this Act is
    assented to and published in the Government Gazette.

(2) Remaining provisions take effect on 1 April 2027.

ARTICLE 28. SEVERABILITY.

If any provision of this Act is held invalid by the Constitutional Court of the Republic of South Africa, the invalidity does not affect other provisions that can be given effect.

ARTICLE 29. CONSTITUTIONAL AND PFMA CONSISTENCY.

This Act is enacted consistent with the Constitution of the Republic of South Africa, 1996, particularly Section 10 (human dignity), Section 22 (freedom of trade, occupation and profession), Section 26 (housing), Section 27 (sufficient food, water, and social security), Section 195 (basic values of public administration), Section 224 (Reserve Bank independence), Chapter 3 (cooperative government), and Chapter 13 (finance); and with the Public Finance Management Act, No. 1 of 1999, the Companies Act, No. 71 of 2008, and the King Code on Corporate Governance.

ARTICLE 30. INTERPRETATION.

In this Act -

"the Authority" or "SAPCA" means the South Africa Productive Capacity Authority established under Article 4;

"the Corps" or "CRCSA" means the Civic Robot Corps of South Africa established under Article 17;

"the 13-digit South African ID number" means the personal identification number issued by the Department of Home Affairs under the Identification Act, No. 68 of 1997;

"PIC" means the Public Investment Corporation SOC Ltd;

"IDC" means the Industrial Development Corporation of South Africa Ltd;

"DBSA" means the Development Bank of Southern Africa;

"the Land Bank" means the Land and Agricultural Development Bank of South Africa under the Land and Agricultural Development Bank Act, No. 15 of 2002;

"Eskom" means Eskom Holdings SOC Ltd;

"NTCSA" means the National Transmission Company South Africa SOC Ltd;

"the future independent TSO" means the future independent Transmission System Operator State-Owned Company contemplated by the Electricity Minister's December 2025 next-stage-separation determination;

"Koeberg" means the Koeberg Nuclear Power Station near Cape Town;

"NNR" means the National Nuclear Regulator;

"SASSA" means the South African Social Security Agency established under the South African Social Security Agency Act, No. 9 of 2004;

"the Marmot quartet" means the four research programmes identified in Universal Foundational Citation C above (Marmot Whitehall, Sapolsky Serengeti baboons, Shively cynomolgus macaques, Blackburn telomere research);

"the replication threshold" means the Casey Handmer formulation identified in Universal Foundational Citation A above;

"the Freedom Charter" means the document adopted at the Congress of the People at Kliptown on 26 June 1955;

"Ubuntu" means the Nguni Bantu philosophical concept articulated in S v Makwanyane (1995) and the subsequent jurisprudence of the Constitutional Court;

"JETP" means the Just Energy Transition Partnership announced at COP 26 in November 2021;

"REIPPPP" means the Renewable Energy Independent Power Producer Procurement Programme launched in 2011;

"the PFMA" means the Public Finance Management Act, No. 1 of 1999;

"the Companies Act" means the Companies Act, No. 71 of 2008;

"ordinarily resident" has the meaning given by the Identification Act, No. 68 of 1997, and South African immigration law.

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