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Budget Speech Highlights

​​​​​Budget Speech Highlights

13 March 2025

The big issues that the Budget attempted to address were weak economic growth, the Public Wage Bill, growing deficits and finding revenue to fund the economy for growth.

1. Introduction

The 2025 Budget proposes a significant increase in revenue, namely, by increasing the much-contested VAT rate by 0.5% in each of the next two years to 16% in 2026/27. Tax policy proposals are designed to raise R28 billion in additional revenue in 2025/26 and R14.5 billion in 2026/27.

To facilitate growth, the public sector will spend R1.03 trillion on infrastructure over the next three years, focusing on electricity, rail, water and transportation infrastructure projects.

Real economic growth is forecast to rise to 1.9% in 2025. Government hopes to stabilise government debt at 76.2% of GDP by 2025/26. The consolidated budget deficit is expected to narrow to 3.5% of GDP by 2027/28.

  • Specific excise duties on alcoholic beverages increase by 6.75% and tobacco products will increase by between 4.75% and 6.7%, with effect from 12 March 2025
  • No inflationary adjustment to personal income tax brackets proposed
  • More food items will be added to the VAT zero-rated list including specific edible offal, specific meat cuts, unflavoured dairy liquid blends and specific canned vegetables to assist poor households
  • Government will maintain support to the poor and vulnerable with large allocations to education, healthcare and social development. The temporary COVID-19 social relief of distress will be extended until March 2026, with provisional allocations in 2026/27 and 2027/28.

2. Taxation

2.1 Income tax on individuals

Government proposes no inflationary adjustments to personal income tax brackets and rebates.

Comment: The fact that personal income tax brackets will not be adjusted for inflation increases the inflationary pressure on households. Some individuals could find themselves in a higher tax bracket for the coming year of assessment after having received their annual salary increases.

2.2 Income tax on trusts

Income tax on trusts remains the same.

2.3 Reinstating the exemption for child maintenance payments funded from after-tax income

Child maintenance payments, except in the case of deductions from retirement fund benefits, are made using after-tax income and paid to the parent or guardian living with the child. The paying party receives no tax deduction or relief for these payments, while the recipient is taxed on the maintenance received.

Since these payments are intended to fulfil the fundamental obligation of supporting a child, taxing them in the hands of the recipient requires reconsideration to better align with government’s social policy objectives. It is proposed that amendments be made to exclude child maintenance payments from the recipient’s taxable income to restore the original policy intent.

2.4 Trustee’s role as the representative taxpayer of the pre-insolvent person

An amendment is proposed to confirm that the liability of a trustee of an insolvent estate, in their representative capacity, also extends to any income received or accrued to the insolvent person prior to the sequestration of the estate.

2.5 Capital Gains Tax

The taxable capital gain for individuals and trusts remains unchanged.

2.6 Company Tax, Small Business Income Tax and Micro-business Turnover Tax

Company tax rates remain unchanged at 27% and the income tax table for small businesses, as well as the tax table relating to turnover tax for micro-businesses, are unchanged for the coming year of assessment.

2.7 Collective Investment Scheme (CIS) taxation

A discussion paper on CIS taxation made three main proposals: make CIS fully tax-transparent, provide a threshold for CIS, and remove hedge funds from the framework. Government acknowledges the administrative concerns raised in respect of the fully tax-transparent proposal and confirms that it does not intend to tax all CIS returns as revenue. Consultations will continue in 2025.

2.8 The following remains unchanged

  • Dividends tax on both local and foreign dividends
  • Donations Tax
  • Estate Duty
  • Dividends Withholding Tax
  • Donations to Public Benefit Organisations

2.9 Medical tax credits

No changes to medical tax credits are proposed – these will remain at R364 per month for the first two beneficiaries and at R246 per month for the remaining beneficiaries.

2.10 Adjustment of transfer duty

The monetary thresholds for transfer duties will be adjusted by 10% to compensate for inflation. The transfer duty tax rates will remain unchanged.

The adjusted values are indicated in the below table and are to become effective on 1 April 2025.

2024/252025/26
Property value (R)Rates of TaxProperty value (R)Rates of Tax
R0 – R1 100 0000% of property valueR0 – R1 210 0000% of property value
R1 100 001 – R1 512 5003% of property value above R1 100 000R1 210 001 – R1 663 8003% of property value above R1 210 000
R1 512 501 – R2 117 500R12 375 + 6% of property value above R1 512 500R1 663 801 – R2 329 300R13 614 + 6% of property value above R1 663 800
R2 117 501 – R2 722 500R48 675 + 8% of property value above R2 117 501R2 329 301 – R2 994 800R53 544 + 8% of property value above R2 329 300
R2 722 501 – R12 100 000R97 075 + 11% of property value above R2 722 501R2 994 801 – R13 310 000R106 784 + 11% of property value above R2 994 800
R12 100 001 and aboveR1 128 600 + 13% of property value above R12 100 000R13 310 001 and aboveR1 241 456 + 13% of property value above R13 310 000

2.11 Interest exemptions

No changes to interest exemptions are proposed.

2.12 Subsistence allowances and advances

Where the recipient is obliged to spend at least one night away from his or her usual place of residence on business, and the accommodation to which that allowance or advance relates is in the Republic of South Africa, and the allowance or advance is granted to pay for:

  • Meals and incidental costs, an amount of R570 is deemed to have been expended per day; or
  • Incidental costs only, an amount of R176 is deemed to have been expended per day

Where the accommodation to which that allowance or advance relates is outside the Republic of South Africa, a specific amount per country is deemed to have been expended. Details of these amounts are published on the SARS website (www.sars.gov.za), under Legal Counsel – Secondary Legislation – Income Tax Notices 2025 – Notice 4458, published on 1 March 2024.

Where the recipient is, by reason of the duties of his or her office or employment, obliged to spend a part of a day away from his or her usual place of work or employment, a reimbursement or advance for expenditure actually incurred by the recipient is exempt if the recipient is allowed by his or her principal to incur expenditure on meals and other incidental costs for that part of the day, and the amount of the reimbursement does not exceed R176.

2.13 Travel allowance

Travel allowance rates per kilometre, which may be used in determining the allowable deduction for business travel against an allowance or advance where actual costs are not claimed, are determined using the following table:

Value of the Vehicle (including VAT) (R)Fixed cost (R p.a.)Fuel cost (c/km)Maintenance cost (c/km)
0 – 100 00033 940146.747.4
100 001 – 200 00060 688163.859.3
200 001 – 300 00087 497177.965.4
300 001 – 400 000111 273191.471.4
400 001 – 500 000135 048204.883.9
500 001 – 600 000159 934234.998.5
600 001 – 700 000184 867238.9110.5
700 001 – 800 000211 121242.9122.5
Exceeding 800 000211 121242.9122.5

  • 80% of the travel allowance must be included in the employee’s remuneration for the purposes of calculating PAYE. The percentage is reduced to 20% if the employer is satisfied that at least 80% of the use of the motor vehicle for the tax year will be for business purposes
  • No fuel cost may be claimed if the employee has not borne the full cost of fuel used in the vehicle, and no maintenance cost may be claimed if the employee has not borne the full cost of maintaining the vehicle (e.g. if the vehicle is covered by a maintenance plan)
  • The fixed cost must be reduced on a pro-rata basis if the vehicle is not used for business purposes for a full year
  • The actual distance travelled during a tax year, and the distance travelled for business purposes, substantiated by a logbook, are used to determine the costs that may be claimed against a travel allowance

3. Retirement fund matters

3.1 Retirement fund contributions

The tax deduction for retirement fund contributions remains unchanged. The position is still that the deduction is limited to 27.5% of the greater of the amount of remuneration for PAYE purposes or taxable income (both excluding retirement fund lump sums and severance benefits). The deduction is further limited to the lower of R350 000 or 27.5% of taxable income, before the inclusion of a taxable capital gain. Any contributions exceeding the limitations are carried forward to the immediately following year of assessment, and are deemed to have been contributed in that following year.

3.2 Retirement fund lump sum tax

Tax on retirement fund lump sum withdrawal benefits remains unchanged, as well as tax on retirement fund lump sum retirement and severance benefits.

3.3 Two-pot retirement system

A member of a retirement fund, including a member who is retrenched, cannot withdraw any portion of their retirement component until retirement. During the public comment process on the Two-pot retirement system legislation, government received requests to allow access to the retirement component when a member is retrenched. The restructuring required for this proposed reform is complex and therefore forms part of the second phase of the Two-pot retirement system reforms.

Government started work and discussions on measures that may allow access to the retirement component if a member has been retrenched and is in financial distress. Strict conditions will apply to this access such as providing proof that the member has no alternative source of income after a period of time, such as payments from the Unemployment Insurance Fund and limiting access to a percentage of income rather than a cash lump sum. The National Treasury (NT) will engage stakeholders, including labour and industry, once the research is concluded.

The Budget review further confirmed that to date, the tax on savings withdrawal benefits has surpassed the initial estimate of R5 billion for 2024/25, with tax collections amounting to R11.6 billion as of end of January 2025.

The 2025 Revenue Laws Amendment Bill, dealing with amendments to the Two-pot legislation, has also been presented to Parliament.

3.4 Cross-border tax treatment of retirement funds

The current cross-border tax treatment of retirement funds may result in double non-taxation, particularly where South Africa is granted the taxing right by treaty. It is proposed that changes be made to the rules that currently exempt lump sums, pensions and annuities received by South African residents from foreign retirement funds for previous employment outside South Africa, with amendments in the current legislative cycle.

3.5 Clarifying the inclusion of an amount assigned to a non-member spouse under religious tenets

In 2024, the Pension Funds Act was amended to recognise court orders pertaining to the division of marital assets in accordance with religious tenets. However, the Income Tax Act requires a consequential amendment to paragraph 2(1)(b)(iA) of the Second Schedule to the Act, which deals with the taxation of pension interest allocations to non-member spouses in terms of a divorce order, to include amounts assigned to a non-member spouse in compliance with the tenets of a religion.

3.6 Clarifying payment of death benefits from the savings component

It is proposed that an amendment be made to the definition of “savings component” in the Income Tax Act to clarify that, on a member’s death, any lump sum paid from the savings component will be considered part of the retirement fund lump sum benefit in terms of the Income Tax Act.

3.7 Early retirement programme for public servants

The 2024 Medium Term Budget Policy Statement (MTBPS) announced that government would offer an early retirement incentive. Over the next two years, the 2025 Budget provides R11 billion in funding to incentivise public servants to retire early. Those wishing to pursue this option will have to apply, with approvals given only by the relevant executive authority. Up to 30 000 state employees are expected to opt for early retirement. The programme aims to manage staff headcount in a targeted manner and revitalise the public service.

3.8 Government Employees Pension Fund

Membership in the Government Employees Pension Fund (GEPF), a defined benefit pension fund for public‐sector employees, grew by 0.8% in 2023/24. At the end of March 2024, the GEPF recorded its highest membership to date, with 1 777 902 active members and 544 765 pensioners and beneficiaries. The GEPF is solvent, with statutory actuarial valuations confirming that its assets exceed its best estimate of liabilities. Total benefits paid for claims increased from R137.4 billion in 2022/23 to R142.5 billion in 2023/24, primarily due to higher pensionable salaries in 2023/24. Contributions income rose from R83.1 billion in 2022/23 to R92.2 billion in 2023/24, strengthening the GEPF’s financial position. At the end of March 2024, the GEPF reported a net cash flow position of R59.7 billion.

4. Capital Flows Management Framework

The 2024 Budget Review indicated that research will be undertaken to investigate the impact of recent reforms to modernise the foreign-exchange system and in turn promote trade and investment.

As part of this research, the International Monetary Fund conducted a technical review of the increase and harmonisation of foreign exposure limits for institutional investors to 45% in 2022. The draft review stated that the increase could have been implemented in a more transparent and phased manner, but the depth of South African financial markets meant that capital outflows could be absorbed without significant impact on the exchange rate and bond prices. The review recommended that the institutional limit not be reduced from 45% as the reputational, implementation and administrative costs would outweigh any potential benefits.

5. Unclaimed assets

In September 2022, the Financial Sector Conduct Authority (FSCA) published a paper on unclaimed assets across the financial sector, titled A Framework for Unclaimed Financial Assets in South Africa. Following responses to, and consultation on, the recommendations put forward in the paper, the FSCA published a response document on the paper in March 2024. The NT and the FSCA will work with the financial services industry to develop the recommendations from these papers, including a framework to manage unclaimed assets and the establishment of a central unclaimed assets fund.

Comment: It is critical that sufficient time is allowed for the tracing of beneficiaries before assets are transferred to a central unclaimed assets fund, where active tracing is unlikely to occur. The central unclaimed assets fund will further have to be subject to rigorous regulation and oversight to ensure the proper functioning thereof and to prevent possible corruption and fraud.

6. VAT

Government proposes to increase the VAT rate by 0.5% in 2025/26, with effect 1 May 2025, and by another 0.5% in the following year 2026/2027, with effect 1 April 2026. This will bring the VAT rate to 16% in 2026/27.

In order to mitigate the effect, government proposes expanding the basket of VAT zero-rated food and also, the general fuel levy will not be increased.

7. Infrastructure funding

Government intends to publish a consultation paper on unlocking institutional funding for infrastructure. It will propose that certain investment vehicles be enabled to facilitate such investments and would offer a flow-through tax regime. Further consultations will take place during 2025.

8. Financial Action Task Force (FATF) grey list

Government continues to address the 22 action items in the action plan agreed with the FATF. Once all items have been implemented and the improvements deemed sustainable, the FATF will reconsider the country’s grey listing. South Africa provides a progress report every four months. The last progress report was submitted in March 2025.

The February 2025 plenary confirmed that two action items remain. These relate to demonstrating a sustained increase in the investigation and prosecution of complex money laundering and terror financing. South Africa is working to address both outstanding action items by June 2025 to exit grey listing by October 2025.

9. Crypto asset policy

The Intergovernmental Fintech Working Group published a position paper on regulating crypto assets in June 2021. The group continues its analytical work to understand the applicable use cases of stablecoins and to recommend an appropriate policy and regulatory response. The group recently finalised a diagnostic of the domestic stablecoin landscape, which will be published in 2025. In addition, the group aims to finalise a set of regulatory recommendations in line with relevant international standards, including a framework for cross-border crypto asset transactions, which will be published for public consultation during 2025.

10. Artificial intelligence (AI) in the financial sector

In 2025, the FSCA, in collaboration with the Prudential Authority (PA), will publish a market study on the adoption and use of AI in South Africa’s financial sector.

Integrating AI into the financial sector presents both opportunities and challenges, particularly in the areas of consumer protection, market conduct and financial soundness. Despite AI’s potential to enhance efficiency and innovation, there is a significant gap in understanding its current adoption and impact, and the associated regulatory challenges. The market study aims to explore the landscape of AI within the financial industry, focusing on how AI technologies affect consumer protection, influence market conduct and affect financial stability. The research will help to ensure that AI is used ethically, responsibly and effectively while safeguarding the integrity and soundness of the financial sector.

Finance ministers and central bank governors of the G20 will also discuss various financial sector issues, with a focus on financial regulations relating to cross-border payments, AI and crypto assets. The FSCA aims to convene a roundtable about AI in the financial sector with stakeholders from Africa and the rest of the world alongside the G20 programme of events. The aim is to promote international dialogue on conduct and consumer protection issues associated with AI.

11. Social grants

The budget for social grants is increased by R8.2 billion over the medium term to account for higher costs of living. In April 2025, the old age grant, war veterans grant, disability grant and care dependency grant will each increase by R130. The foster care grant will increase by R70 in April to R1,250. The child support grant and grant-in-aid grant will both rise by R30 in April to R560.

The COVID-19 social relief of distress grant (SRD) will be extended by another year until 31 March 2026. An amount of R35.2 billion is allocated to extend the payment at the current R370 per month per beneficiary, including administration costs. As announced by the President in the State of the Nation Address, the SRD will be used as a basis for the introduction of a sustainable form of income support for unemployed people. The future form and nature of the SRD will be informed by the outcome of the review of active labour market programmes. This is expected to be completed by September 2025.

The increases are as per the table below:

Allowance2024/25 (Rand)2025/26 (Rand)Percentage Increase
Old age2 1852 3155.9%
War veterans2 2052 3355.9%
Disability2 1852 3155.9%
Foster care1 1801 2505.9%
Care dependency2 1852 3155.9%
Child support5305605.7%
Grand in-aid5305605.7%

Comment: The budget review indicates that in the current tax year 4 138 million people receive the state old age grant. The SA census of 2022 indicates that 9.2% of the population are over the age of 60, meaning approximately over 72% of people over the age of 60 are dependent on the state for income in retirement.

12. Financial inclusion and the ombud system

The NT will develop a national strategy on financial inclusion in 2025 based on the policy paper, "An Inclusive Financial Sector for All," which Cabinet approved in 2023. The NT is also reforming the financial sector ombud system to make it simpler, accessible, comprehensive, efficient, and effective.

As part of these reforms, a National Financial Ombud Scheme was established and began operating on 1 March 2024 after being granted recognition by the Ombud Council. The National Financial Ombud is an umbrella financial services ombud scheme formed by the amalgamation of four ombud schemes: the offices of the Banking Ombud, the Credit Ombud, the office of the Long-term Insurance Ombud, and the Ombudsman for Short-term Insurance.

Comment: The Pension Funds Adjudicator will remain separate but will in due course be renamed the Retirement Funds Ombud.

13. Conduct of Financial Institutions (COFI) Bill

The NT is finalising the Conduct of Financial Institutions Bill (“the Bill”) together with comprehensive amendments to the Financial Sector Regulation Act and the Pension Funds Act and repealing various financial sector laws that are conduct-focused. The Bill will streamline and harmonise the legal landscape that financial institutions will operate within and provide a single, holistic legal framework for market conduct regulation in South Africa that is consistently applied to all financial institutions.

The Bill has been published twice for public consultation, discussed at several workshops, and revised to address the comments received. The final draft of the Bill is awaiting certification from the Office of the Chief State Law Adviser, whereafter it will be submitted to Cabinet for approval to be tabled in Parliament.

The FSCA is preparing for the Bill’s implementation, as will be explained in more detail in its 2025 Three-year Regulation Plan. The FSCA has already started informal engagements on some of the regulatory frameworks it intends to make once the Bill is passed, and these will continue over the next budget period.

In addition, the amendments to the National Payment System Act (1998) will be carved out from the schedule of the Bill into a standalone bill for the national payment system due to the length of the proposed amendments. Alignment will be maintained with the draft Bill and the Financial Sector Regulation Act. Given their interdependencies, it is envisaged that the two bills will be processed concurrently, to the extent feasible.

Comment: The Conduct of Financial Institutions Bill, once enacted, will fundamentally change the regulatory landscape, and will have significant implications for the financial services industry. The amendments to the Pension Funds Act, initially proposed in the Bill, not relating to the conduct of funds and fund officers, will be contained in an Omnibus Bill, which may only be published in 2026.

The budget proposals in this document by the Minister of Finance, are subject to ratification by Parliament. The information herein incorporates commentary from the budget speech, but the legislation finally enacted may differ. All information herein is believed to be correct at the time of publication, 12 March 2025. While we have taken utmost care in compiling this document, we accept no responsibility for any inaccuracies, errors or omissions.

This document is not intended to give advice, consequently the contents hereof should not be used as a basis for action without seeking your own professional advice. Tax rate changes proposed in the budget speech only become effective once legislation is enacted by Parliament. No part of this work may be altered or reproduced without the consent of Law Services.