Note: The information on this page is not current anymore. The CARA Regulations have been superseded by the National Environmental Management: Biodiversity Act, 2004 (Act no. 10 of 2004) – Alien and Invasive Species (AIS) Regulations which became law on 1 October 2014. Please click here for the most updated information.
The only currently active legislation on weeds and invasive
plants in South Africa forms part of the Conservation of Agricultural Resources
Act, 1983 (Act No 43 of 1983) (CARA). Regulations 15 and 16 under this Act,
which concern problem plants, were amended during March 2001. CARA is currently
(2011) in the process of being revised.
The National Environmental Management: Biodiversity Act (Act No
10 of 2004) (NEM:BA) also has a chapter dealing with alien species and invasive
species, which is relevant to this subject. The regulations in terms of this
chapter have, however, not been finalized, and as a result this chapter cannot
be implemented yet.
A lot of useful information on CARA can be found on the website
of the Working for Water
Legislation regarding noxious weeds is nothing new in South
Africa. As early as 1860, spiny cocklebur (Xanthium spinosum) was
declared a noxious weed in the Cape Peninsula, and even before the promulgation
of the Noxious Weeds Act, No 42 of 1937, the various Provincial Administrations
were charged with the enforcement of legislation on the compulsory eradication
The present legislation forms part of the Conservation of
Agricultural Resources Act, 1983 (Act No 43 of 1983) (CARA). Regulations 15 and
16 under this Act, which concern problem plants, were amended during March 2001.
These changes were necessitated by the accelerating deterioration of the
country's natural resources due to invasion by alien plants, as well as a
heightened public awareness with regards to environmental matters.
Whereas CARA previously classified problem plants into two
groups - declared weeds and plant invaders - the amended regulations make
provision for four groups: declared weeds (Category 1 plants), plant invaders
(Category 2 and Category 3 plants) and indicators of bush encroachment. The
first three groups consist of undesirable alien plants and are covered by
Regulation 15. Bush encroachers, which are indigenous plants that require sound
management practices to prevent them from becoming problematic, are covered
separately by Regulation 16.
The actions required with regard to any plant species depend on
the category in which the plant appears in Table 3 of the amended regulations,
and might differ from province to province. In certain cases, special conditions
were added that apply only to that specific species.
These are prohibited plants that will no longer be tolerated,
neither in rural nor urban areas, except with the written permission of the
executive officer or in an approved biocontrol reserve. These plants may no
longer be planted or propagated, and all trade in their seeds, cuttings or other
propagative material is prohibited. They may not be transported or be allowed to
Plant species were included in this list for one or more of the
following reasons: they might pose a serious health risk to humans or livestock,
cause serious financial losses to land users, be able to invade undisturbed
environments and transform or degrade natural plant communities, use more water
than the plant communities they replace or be particularly difficult to control.
Most of the plants in this category produce copious numbers of seeds, are wind
or bird dispersed or have highly efficient means of vegetative reproduction.
Whereas some of these plants were introduced inadvertently, have no obvious
function to fulfil in South Africa and are generally regarded as undesirable,
many of them are popular garden or landscaping plants. What they all have in
common, however, is the fact that their harmfulness outweighs any useful
properties they might have. Care was taken not to include a plant in this
category if part of the population of South Africa would suffer because of its
absence. The ornamentals in this category ought to be reasonably easy to replace
with less invasive substitutes.
The following species are declared weeds (Category 1 plants):
Woody plants (trees or shrubs): several Australian
Acacia species (A. implexa, A. longifolia, A. paradoxa and A.
pycnantha); two lebbeck trees (Albizia lebbeck and A.
procera); Mauritius thorn (Caesalpinia decapetala); four cestrum
species (Cestrum aurantiacum, C. elegans, C. laevigatum and C.
parqui); triffid weed (Chromolaena odorata); Montpellier and Scotch
broom (Cytisus monspessulanus and C. scoparius); three hakeas
(Hakea drupacea, H. gibbosa and H. sericea); all seed producing
species or seed producing hybrids of Lantana that are non-indigenous to
Africa (this excludes the creeping, purple-flowered Lantana
montevidensis, which does not produce seeds in South Africa); Australian
myrtle (Leptospermum laevigatum); Indian laurel (Litsea
glutinosa); purple loosestrife (Lythrum salicaria); cat's claw
creeper (Macfadyena unguis-cati); tree daisy (Montanoa
hibiscifolia); the single-flowered varieties of oleander (Nerium
oleander); wild tobacco (Nicotiana glauca); lesser broomrape
(Orobanche minor); stinkbean (Paraserianthes lophantha); four
ornamental granadilla-like species (Passiflora caerulea, P. mollissima, P.
suberosa and P. subpeltata, but not the edible Passiflora
edulis); pereskia (Pereskia aculeata); Australian cheesewood
(Pittosporum undulatum); the ornamental Durban guava (Psidium x
durbanensis); wax tree (Rhus succedanea); bloodberry (Rivina
humilis); eglantine (Rosa rubiginosa); American bramble (Rubus
cuneifolius); red sesbania (Sesbania punicea); silverleaf bitter
apple (Solanum elaeagnifolium); bugweed (Solanum mauritianum);
Spanish broom (Spartium junceum); yellow bells (Tecoma stans);
yellow oleander (Thevetia peruviana); Indian almond (Triplaris
americana) and European gorse (Ulex europaeus).
Succulents: chandelier plant (Bryophyllum
delagoense); queen of the night (Cereus jamacaru); torch cactus
(Echinopsis spachiana); harrisia cactus (Harrisia martinii);
jointed cactus (Opuntia aurantiaca); long spine cactus (O.
exaltata); sweet prickly pear (O. ficus-indica - but excluding all
spineless cactus pear cultivars and selections); creeping prickly pear (O.
humifusa); imbricate cactus (O. imbricata); small round-leaved
prickly pear (O. lindheimeri); drooping prickly pear (O.
monacantha); rosea cactus (O. rosea); saucepan cactus (O.
spinulifer) and pest pear of Australia (O. stricta).
Herbaceous plants: burweed (Achyranthes aspera);
crofton weed and mistflower (Ageratina adenophora and A. riparia);
two ageratums (Ageratum conyzoides and A. houstonianum); camel
thorn bush (Alhagi maurorum); Madeira vine (Anredera cordifolia);
moth catcher (Araujia sericifera); two Mexican poppy species (Argemone
mexicana and A. ochroleuca); pom pom weed (Campuloclinium
macrocephalum); the small-flowered Indian canna (Canna indica - but
not the common ornamental species or cultivars); balloon vine (Cardiospermum
grandiflorum); spear thistle (Cirsium vulgare); field bindweed
(Convolvulus arvensis); two dodder species (Cuscuta campestris and
C. suaveolens); three thorn apple species (Datura ferox, D.
innoxia and D. stramonium); two echium species (Echium
plantagineum and E. vulgare); four species of ginger lilies
(Hedychium coccineum, H. coronarium, H. flavescens and H.
gardnerianum); pepper-cress (Lepidium draba); parthenium weed
(Parthenium hysterophorus); kudzu vine (Pueraria lobata); potato
creeper (Solanum seaforthianum); wild tomato (Solanum
sisymbriifolium); Mexican and red sunflower (Tithonia diversifolia
and T. rotundifolia) and two cocklebur species (Xanthium spinosum
and X. strumarium).
Grasses or reeds: Spanish reed (Arundo donax);
pampas grass (Cortaderia selloana and C. jubata) - excluding
sterile varieties of C. cordata; nassella tussock (Nassella
trichotoma); white tussock (Nassella tenuissima); fountain grass
(Pennisetum setaceum - excluding the sterile cultivar 'Rubrum') and
feathertop (P. villosum).
Aquatic plants: red water fern (Azolla
filiculoides); dense water weed (Egeria densa); water hyacinth
(Eichhornia crassipes); Canadian water weed (Elodea canadensis);
parrot's feather (Myriophyllum aquaticum); spiked water-milfoil
(Myriophyllum spicatum); water lettuce (Pistia statiotes) and
Kariba weed (Salvinia molesta).
Plants that are problematic only in certain areas, but are
popular ornamental or utility plants elsewhere, were declared weeds (Category 1
plants) only in certain provinces. These include:
The dagga plant (Cannabis sativa), which used to be a
declared weed, has been removed from the list because it is covered by the
These are plants with the proven potential of becoming
invasive, but which nevertheless have certain beneficial properties that warrant
their continued presence in certain circumstances. CARA makes provision for
Category 2 plants to be retained in special areas demarcated for that purpose,
but those occurring outside demarcated areas have to be controlled. The
exception is that Category 2 plants may also be retained or cultivated in
biological control reserves, where the plants will serve as host plants for the
breeding of biological control agents. The growing of Category 2 plants in a
demarcated area qualifies as a water use, and is subject to the requirements of
section 21 of the National Water Act, 1998 (Act No. 36 of 1998).
An area can only demarcated for the growing of Category 2
plants by the Executive Officer. The land user needs to obtain a water use
license; the plants have to primarily serve a commercial or utility purpose,
such as a woodlot, shelter belt, building material, animal fodder, soil
stabilisation, medicinal or own consumption; the conditions under which they are
cultivated, have to be controlled; all reasonable steps have to be taken to
curtail the spreading of seeds or vegetatively reproducing material outside the
demarcated area, and all specimens outside the demarcated area have to be
controlled. The Executive Officer has the power to impose additional conditions
to ensure the adequate control of Category 2 plants in demarcated areas.
Seed or other propagative material of Category 2 plants may
only be sold to, and acquired by, land users of areas demarcated for the growing
of that species, or for the establishment of a biocontrol reserve. Category 2
plants may not occur within 30 m from the 1:50 year flood line of watercourses
or wetlands, unless authorisation has been obtained in terms of the National
Water Act. The Executive Officer has the power to grant exemption from some of
the above requirements.
The following species are classified as Category 2 plants:
rooikrans (Acacia cyclops); silver wattle (A. dealbata) - this
species not allowed in the Western Cape; green wattle (A. decurrens);
black wattle (A. mearnsii); Australian blackwood (A. melanoxylon);
Port Jackson willow (A. saligna); sisal hemp (Agave sisalana); old
man salt bush (Atriplex nummularia); beefwood and horsetail (Casuarina
cunninghamiana and C. equisetifolia) - neither of which will be
allowed for dune stabilisation; several species of gum trees (Eucalyptus
camaldulensis, E. cladocalyx, E. diversifolia, E. grandis, E. paniculata, E.
sideroxylon and E. lehmannii) - the latter species not allowed in the
Western Province (because of their importance for beekeepers, legislation with
regard to Eucalyptus species might still be changed; they might be
exempted from the need of being controlled wherever they occur outside
demarcated areas and, instead, control might only be mandatory in or near
watercourses and wetlands); honey locust (Gleditsia triacanthos), St
John's wort (Hypericum perforatum), which may only be grown under
controlled conditions; leucaena (Leucaena leucocephala) - this species
not allowed in the Western Cape; several pine species (Pinus canariensis, P.
elliotti, P. halepensis, P. patula, P. pinaster, P. radiata, P. roxburghii
and P. taeda); white and grey poplars (Populus alba and P. x
canescens); honey and velvet mesquite (Prosopis glandulosa and P.
velutina), as well as their hybrids; the commercial guava (Psidium
guajava); castor oil plant (Ricinus communis); black locust
(Robinia pseudoacacia), which may be propagated as a rootstock only, and
then only with special authorisation ; watercress (Rorippa
nasturtium-aquaticum); European blackberry (Rubus fruticosus); the
weeping and crack willows (Salix babylonica and S. fragilis) - not
to be confused with the indigenous Salix mucronata, which should not be
removed; and Johnson grass (Sorghum halepense).
These plants are undesirable because they have the proven
potential of becoming invasive, but most of them are nevertheless popular
ornamentals or shade trees that will take a long time to replace. A few of them
were placed into this category instead of into category 1 because they do not
cause problems in all situations. In terms of Regulation 15 of CARA, Category 3
plants will not be allowed to occur anywhere except in biological control
reserves, unless they were already in existence when these regulations went into
effect. The conditions on which these already existing plants may be retained
are that they do not grow within 30 m from the 1:50 year flood line of
watercourses or wetlands, that all reasonable steps are taken to keep the plant
from spreading, and that the Executive Officer has the power to impose
additional conditions or even prohibit the growing of Category 3 plants in any
area where he has reason to believe that these plants will pose a threat to the
Propagative material of these plants, such as seeds or
cuttings, may no longer be planted, propagated, imported, bought, sold or traded
in any way. It will, however, be legal to trade in the wood of Category 3
plants, or in other products that do not have the potential to grow or multiply.
The Executive Officer will have the power to grant exemption from some of the
The following species are Category 3 plant invaders: pepper
tree wattle (Acacia elata); pearl acacia (Acacia podalyriifolia);
tree-of-heaven (Ailanthus altissima); sponge-fruit salt bush (Atriplex
lindleyi subsp. Inflata); two species of orchid trees (Bauhinia
purpurea and B. variegata); two species of cotoneasters
(Cotoneaster franchetii and C. pannosus); loquat (Eriobotrya
japonica); pitanga (Eugenia uniflora) - but not allowed in Northern
Province, Mpumalanga or KwaZulu-Natal; Australian silky oak (Grevillea
robusta); moonflower (Ipomoea alba) - but not allowed in Northen
Province, Mpumalanga or KwaZulu-Natal; morning glory (Ipomoea indica) -
but not allowed in Northen Province, Mpumalanga or KwaZulu-Natal; another
species of morning glory (Ipomoea purpurea); jacaranda (Jacaranda
mimosifolia); five species of privets (Ligustrum japonicum, L. lucidum,
L. ovalifolium, L. sinense and L. vulgare) - L. lucidum may be
propagated only as a rootstock if special permission has been obtained; St
Joseph's lily (Lilium formosanum, also incorrectly called Lilium
longiflorum); "syringa" (Melia azedarach); New Zealand christmas tree
(Metrosideros excelsa); giant sensitive plant (Mimosa pigra);
white mulberry (Morus alba) - excluding clutivar 'Pendula',- may be
propagated only as a rootstock , if special permission has been obtained (note
that the black mulberry, Morus nigrum, which is the better fruit tree of
the two, is not subject to legislation); manatoka (Myoporum tenuifolium
subsp. montanum, also sometimes called M. acuminatum); sword fern
(Nephrolepis exaltata) - excluding its cultivars; belhambra
(Phytolacca dioica); 'Abyssinian' coleus (Plectranthus comosus);
pickerel weed (Pontederia cordata); strawberry and Durban guavas
(Psidium cattleianum and P. x durbanensis); yellow and Himalayan
firethorn (Pyracantha angustifolia and P. crenulata); Brazilian
pepper tree (Schinus terebinthifolius) - but not allowed in
KwaZulu-Natal; three senna species (formerly known as cassias) (Senna
bicapsularis, S. didymobotrya and S. pendula); jambolan (Syzygium
cumini); rose apple (Syzygium jambos); Chinese and pink tamarisk
(Tamarix chinensis and T. ramosissima) - neither of which is
allowed in the Northern, Western or Eastern Cape; the tipu tree (Tipuana
tipu) and the toon tree (Toona ciliata).
The amended regulations stress that, when controlling plants
that occur in areas where they are not allowed, methods should be used that are
appropriate for the species concerned as well as to the ecosystem in which they
occur. One or a combination of the following control methods may be used:
uprooting, felling, cutting, burning, treatment with registered herbicides,
biological control or any other recognised and appropriate method. Repetitive
follow-up actions will be mandatory until the required control has been
The aim of control is to reach a point where, ideally, the
plants concerned do no longer occur in that particular area or, at least, where
the plants can no longer grow, produce viable seeds or spores, coppice, sprout
or produce root suckers, reproduce vegetatively, propagate themselves in any
other way, or spread into other areas. If this is not possible, the plants have
to be contained and their multiplication limited as far as possible.
When controlling weeds and invaders, damage to the environment
has to be limited to the minimum. CARA does not specify the types of
environmental damage that might be caused by control actions, but a few examples
Biological control of weeds is subject to rigorous regulations,
and will be recognised by CARA as a valid control method only if it is practised
in accordance with all these regulations. Biological control involves the use of
host-specific natural enemies of weeds or invaders from the plant's country of
origin, to either kill or remove the invasive potential of these plants. It may
only be initiated by and carried out under the supervision of an academic or
research institute or organisation established by legislation, which practises
and researches biological control of weeds and invader plants. In order to
prevent the waste of biocontrol research effort, money and natural enemies, CARA
also lays down certain rules for the protection of biological control agents. In
areas where biological control is effective, no additional control methods
should be used that would harm the biocontrol agents. Provision is made for
certain areas to be set aside as biological control reserves, i.e. areas in
which a number of invasive plants are maintained as host plants for the
biological control agents, to ensure the continued presence of the agents in
that area. Only the Executive Officer may designate a biological control
reserve, on condition that it is used by a biocontrol expert to rear and
redistribute biocontrol agents. In such a biological control reserve, no
measures may be applied that would render the biocontrol agents ineffective.
Nothing contained in Regulation 15 may be used as a reason for
ignoring or circumventing any other laws.
Declared indicators of bush encroachment concern only
landowners in rural areas and are covered in Regulation 16 of CARA. Bush
encroachment is a term used for "stands of plants of the kinds specified in
Table 4 where individual plants are closer to each other than three times the
mean crown diameter". Plants in this group are not alien plants, but indigenous
plants that tend to become abnormally abundant when the area is degraded by e.g.
overgrazing or injudicious fires.
A list of indigenous plants that might indicate bush
encroachment in specified areas of the country (Table 4) appears in Regulation
16. The list includes plants such as sickle bush (Dichrostachys cinerea)
and sweet thorn (Acacia karroo), but the complete list will not be
The plants themselves are not the problem, but they can be
regarded as a symptom of poor land management practices. Therefore CARA does not
outlaw these plants, but instead prescribes management practices aimed at
preventing bush encroachment, and at combating it where it already occurs. If
communities of plants from the list of indicators occur in the natural
vegetation of an area, the land users have to take the necessary precautions to
prevent the deterioration of their land to such an extent that bush encroachment
takes place. In cases where bush encroachment has already taken place, the land
users have to remove the cause of deterioration and combat the encroachment of
indicator species. Among the prescribed measures are the uprooting, felling or
cutting of plants, the judicious application of registered herbicides, livestock
reduction and the correct utilisation and protection of veld. Regulations 9, 10
and 11 of CARA contain details of livestock reduction and veld utilisation and
protection. The Executive Officer may also impose any additional requirements,
control methods or strategies by means of a directive.
CARA is administered by the National Department of Agriculture (DoA), through
its Direcorate: Land Use and Soil Management (D:LUSM).
The Executive Officer is mentioned repeatedly in the
regulations, usually in connection with the granting of permission for certain
actions, or the making of decisions. The Minister of Agriculture has designated
the Director: Land Use and Soil Management as Executive Officer where CARA is
concerned. The Director has in turn delegated his powers to the Resource
Auditors. Applications for the designation of demarcated areas, or applications
for exemption from any of the requirements of CARA, should be addressed to the
regional office of D:LUSM - see table 1.
Table 1. Regional offices of D:LUSM
Private Bag X120, Pretoria, 0001
(012) 319 7560
(012) 329 5938
P.O. Box 3620, Pietersburg, 0700
(015) 295 4175/6
(015) 291 1936
P.O. Box 1665, Nelspruit, 1200
(013) 755 1420
(013) 755 1961
P.O. Box 2557, Potchefstroom, 2520
(018) 294 3343
(018) 297 4642
P.O. Box 2303, Kimberley, 8300
(053) 831 1793
(053) 83 3101
P.O. Box 34521, Faunasig, 9325
(051) 861 2171
(051) 861 1024
P.O. Box 545, Durbanville, 7551
(021) 976 8136
(021) 976 1889
Private Bag X3917, North End, Port Elizabeth, 6056
(041) 487 1734
(041) 484 4552
P.O. Box 285, Queenstown 5340
P.O. Box 345, Pietermaritzburg 3200
(033) 345 3557
(033) 394 6161
The Resource Auditors of D:LUSM, who are the law enforcement
officers, may delegate some of their powers to employees of a local authority,
who would then become municipal weed inspectors.
Resource Auditors and Municipal Weed Inspectors are authorised
to visit any property at a reasonable time to inspect it for the presence of
declared weeds or invader plants. If category 1, 2 or 3 plants occur contrary to
the specifications of Regulation 15, the land user will be informed of the
offence as well as of the steps that should be taken to correct it. The time
needed to control the offending plants will be determined through consultation
with the land user, and deadlines will be set for certain phases of control. The
Resource Auditor will confirm the decisions taken during the personal visit by
issuing a written directive. The property will be visited again as deadlines
become due, to ascertain whether the necessary control actions have been carried
out satisfactorily. If not, the Resource Auditor has the power to prosecute. A
municipal weed inspector does not have the power to issue a directive, but only
a notice, and cannot prosecute offenders. If the land user does not comply with
the actions required by the notice, the case will be handed over to a Resource
The penalty for non-compliance with the requirements of CARA
could be a fine of up to R5 000 or imprisonment of up to two years, or both, for
a first conviction. This could be doubled at a second or subsequent conviction.
Anybody who considers himself aggrieved by a directive issued
by a Resource Auditor may appeal to the Director-General, and anybody aggrieved
by any other decision or action in terms of this Act may appeal to the Minister.
The appeal should be lodged within a prescribed time, and a prescribed amount
will have to be paid. This amount, or part of it, will be refunded if the appeal
HENDERSON, L. 20001. Alien weeds and invasive
plants. A complete guide to declared weeds and invaders in South Africa.
Plant Protection Research Institute Handbook No. 12. Agricultural Research
Council, Pretoria. 300 pp. (Contains a complete copy of the relevant CARA