Abstract

The Seventh National Development Plan of the Islamic Republic of Iran, as one of the country’s overarching policy documents, delineates five-year objectives and visions and sets forth the roadmap for national development. As the first policy framework formulated in the context of the Second Phase of the Islamic Revolution, this plan—through the prioritization and selection of key strategic axes—has the potential to contribute to long-term and applied policymaking in the field of foreign policy. Within this context, Iran–South Africa relations, which have long attracted attention, have entered a new phase following Iran’s accession to the BRICS group. Iran can strengthen its relations with South Africa within the framework of the Seventh Development Plan; however, this necessitates addressing the question of what role and significance South Africa plays in Iran’s foreign and economic policy under this plan. In response, the research hypothesis posits that establishing a deep and strategic relationship with South Africa, as an emerging power with independent political positions and significant regional and international influence, can provide an excellent opportunity for the expansion of trade, investment, and industrial and technological cooperation for the Islamic Republic of Iran. The findings of this study are analyzed using the SWOT matrix method within the theoretical framework of regional integration. This research examines the opportunities, threats, strengths, and weaknesses of both Iran and South Africa and, ultimately, proposes a strategic cooperation model to elevate bilateral relations from conventional cooperation to a strategic partnership.

Keywords: Seventh National Development Plan; Iran; South Africa; Foreign Policy; Regionalism; SWOT; Strategic Cooperation



Extend Abstract

The Seventh Development Plan of the Islamic Republic of Iran represents the fourth part of the country’s 20-Year Vision Document and the first plan aligned with the realization of the "Second Step of the Islamic Revolution" statement. With a justice-oriented and problem-focused approach, it emphasizes the country's fundamental and crucial issues. Based on upstream documents, including the Transformation Document of the People's Government, this plan identifies priority programs based on developmental drivers and sets the foundation for sustainable and stable development within society. According to the plan, various articles address the development, enhancement, and outlook of Iran’s regional and international relations in fields such as science and technology, economy, energy, health, etc. It emphasizes the need to establish and develop relations with other countries.

One of the countries ripe for strengthened cooperation is South Africa — one of the most advanced and important nations in Africa with broad economic, commercial, and industrial capacities. South Africa is considered a developing and emerging economic power during the current transition in the international system. In this context, the present article seeks to answer the question: What role and significance does South Africa hold in Iran’s foreign and economic policy within the framework of the Seventh Development Plan? It aims to explore South Africa’s position in Iran’s foreign policy and examine the opportunities and challenges this country may pose in achieving the objectives of the Seventh Development Plan — especially in areas such as trade, energy, and technology. The research hypothesis is that establishing a deep and strategic connection with South Africa, as a regional and emerging power, can offer an excellent opportunity for the Islamic Republic of Iran to expand trade, investment, and industrial and technological cooperation. South Africa should be considered one of Iran’s target countries. However, until now, this country’s potential has not been prioritized or systematically exploited in Iran’s foreign policy. This study uses regional integration theory as its general theoretical framework and employs the SWOT method with sources from libraries, documents, and online data to analyze the subject.

Despite ups and downs before and after the Islamic Revolution, Iran-South Africa relations have held a special position in the post-apartheid era for several reasons. South Africa’s active foreign policy on the African continent and within the international system gives it significant weight and influence. Today, South Africa is recognized as a regional power in Africa and an emerging actor in the global system. Bilateral relations between Iran and South Africa resemble Iran’s relations with other emerging powers such as China, Russia, Brazil, and India. The formation of political and economic blocs like the Shanghai Cooperation Organization (SCO), IBSA (India, Brazil, and South Africa), BRICS, and others can shift the balance of international power from the Western Hemisphere to other global regions. Iran’s membership in such blocs not only enhances bilateral ties but also allows it to benefit in dealing with international challenges like the nuclear crisis, sanctions, and multilateralism. In recent years, factors like emerging regional rivals, international sanctions, negative propaganda against Iran, and insufficient attention from Iranian policymakers have weakened ties between the two countries. Nonetheless, South Africa continues to support Iran in international forums and, under suitable conditions, has sought to boost foreign trade with Iran. Iran’s membership in BRICS has opened a new avenue for closer alignment between the two countries. Similar policy orientations in regional and international affairs have fostered multilateralism, anti-interventionist stances, and stronger South-South relations.



One major outcome of such cooperation is the creation of a geopolitical link between Southwest Asia and South/East Africa. This connection, through regional organizations and the development of transit routes, can enhance political and economic cooperation. The inclusion of Iran in BRICS has opened a new chapter in bilateral relations. Reviewing Iran-South Africa trade in recent years underlines the significance of this membership and its impact on advancing bilateral ties. South Africa’s memberships in the G20, G77, IAEA Board of Governors, past non-permanent seat on the UN Security Council, the African Union, and other international bodies have allowed it to actively support Iran and positively influence Africa’s perception of Iran.



The Seventh Development Plan also refers to the development of the Makran region and transit routes, making this another area of convergence between Iran and South Africa. South Africa, through Iran, can access East Asia and Eurasia. Utilizing Iran as a corridor can activate Iran’s transit diplomacy. Additionally, South Africa can significantly support Iran’s scientific development, given its advanced scientific infrastructure and standing as a strategic competition zone between China and the US. South Africa enjoys robust trade with both powers, enabling Iran to attract South African investments (e.g., MTN) and facilitate the entry of modern technology and industrial equipment into the country. Beyond investment, South Africa could act as a third-party channel to help Iran circumvent unjust international sanctions. Other strengths of the relationship include:

Iran’s strategic geographic position and rich natural resources (oil, gas, etc.), Capabilities in defense industries, a favorable healthcare system, a rich cultural heritage and stable governance, Membership in key organizations like BRICS and SCO, South Africa’s international support for Iran, South Africa’s positive economic growth, tax exemptions, and customs union benefits, Potential to influence other African countries to develop ties with Iran. Other shared strengths such as: Transit geography, Population and market potential, South-South discourse, Support for liberation movements, Advocacy for multilateralism

However, existing challenges such as lack of trade diversity, absence of a coherent foreign policy strategy, undefined roadmaps, regional rivals, unimplemented agreements, and geographic distance must be addressed to deepen bilateral cooperation.

Iran-South Africa relations have entered a new phase with Iran’s BRICS membership. Both countries aim to reshape the international system toward a more multilateral order, and their cooperation within BRICS can deepen and expand bilateral ties. However, realizing this potential requires a shift in Iran’s approach to South Africa — from routine diplomatic relations to advanced strategic cooperation.

To elevate relations from ordinary to strategic levels, three main steps must be considered, each with several essential actions:

Step 1: Laying the Institutional Foundation:

Establish a dedicated body to identify and prioritize Iran's target countries.

Develop a comprehensive strategic document, categorizing countries based on priorities.

Designate a specific official body for managing bilateral relations with each target country to reduce inefficiencies and improve effectiveness.

Step 2: Building Communication Bridges

 Redefine the role of Iranian consulates worldwide, turning them into active trade centers.

 Utilize experienced diplomats and experts by establishing a “Council of Economic Advisors.”

 Develop independent economic infrastructures, avoiding traditional systems like Bretton Woods. Use BRICS financial capacities, create joint investment funds, and initiate innovative financial frameworks to reduce dependency and foster multilateral economic collaboration.





Step 3: Operationalizing Strategic Cooperation

This step involves implementing strategic partnerships based on the groundwork from steps one and two. It focuses on leveraging mutual capacities for economic, political, and cultural collaboration.

Based on these three steps and aligned with the Seventh Development Plan, the following policy suggestions are made:

 Launch overseas farming initiatives to produce and export agricultural goods to other African nations

 Supply South Africa’s energy needs

 Leverage relations with African nations via South Africa to boost Iran's national power and ties with non-hostile countries

 Strengthen African-Islamic world relations to counter unilateral global order

 Produce rich films to shape public perception of each other

 Support tourism and promote cultural, artistic, and handicraft exchanges

 Establish international universities, provide scholarships, and facilitate academic exchanges

 Support medical tours and medical-scientific collaborations

 Expand Iranian diplomatic staff across all essential sectors



It's important to note that successful implementation of Step Three depends on the groundwork laid in Steps One and Two. Step Three provides examples of actionable strategies, but many more possibilities for planning and executing strategic cooperation remain open for in-depth development.

Keywords: Iran, South Africa, Foreign Policy, Regionalism, SWOT Model, Strategic Cooperation