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DAF Shark Control Program - Recommended Council Policy Position · Report
GENERAL COMMITTEE MEETING 17 JUNE 2024
6.2 DAF SHARK CONTROL PROGRAM - RECOMMENDED COUNCIL POLICY POSITION
Author Principal Environment Officer (Acting) – Policy and Planning, David
O'Gorman
Environmental Services | Strategy and Environment
Index ECM Subject 21.08 Environmental Management - Fauna / Wildlife
Attachments None
EXECUTIVE SUMMARY
This report responds to a recent Council Notice of Motion and provides further information, advice
and a recommended Council policy position on the Department of Agriculture and Fisheries (DAF)
Shark Control Program (SCP) – specifically the use of nets and drumlines adjacent to Noosa
beaches. The Notice of Motion provided by Cr Lorentson during the Ordinary Meeting – 16 May,
requested the following information;
1. Role and Policy Decision: The report should clearly outline the Council’s role and policy position
on the State government’s Shark Control Program, the use of shark nets and drumlines, including
any ongoing and future trials.
2. Advocacy and Support to the State: Council recognises the importance of advocating for and
supporting matters that are significant to our community. The Chief Executive Officer is requested to
identify and articulate these matters in the report. This may include, but is not limited to the following;
• Continued advances in reporting
• Investigation of temporary net relocation during specific periods
• Continuous Evaluation of Technological Advancements
In supporting this Report, ES held a workshop (6th May) with NC Councillors and Executive Staff,
whereby the DAF Shark Control Program Manager and the Shark Control Program Operations
Coordinator presented information on the SCP and associated SharkSmart community awareness
programs. Specific topics discussed included the implementation and outcomes of the Queensland
Shark Management Plan (2021–2025), and a range of trials being undertaken across QLD of various
technologies and bite mitigations measures that will inform the review of the Shark Management
Plan next year.
Over the past 2 years, ES staff and the Noosa Biosphere Reserve Foundation (NBRF) have actively
supported DAF in the delivery of SharkSmart programs, while Surf Lifesaving Queensland (Noosa)
has supported the trials of alternative shark bite mitigations (drones) under the Queensland Shark
Management Plan (2021–2025). Local Governments play only a minor role in the delivery of the
Queensland Shark Management Plan, primarily through providing assistance in the delivery
of SharkSmart community awareness programs as requested by DAF. The willingness of Council to
further assist the role out of SharkSmart programs, or where appropriate, alternative shark bite
mitigation trials was discussed within the workshop.
Outside of the DAF Shark Control Program, Council holds some additional responsibilities for
managing shark risks to the community through;
1. Marine animal (whale) carcass management
2. Bull shark (dangerous marine animals) advisory signage in Council managed canal systems
(Noosa Waters).
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GENERAL COMMITTEE MEETING 17 JUNE 2024
Further information on Council’s responsibilities across these two related areas have been provided
within this Report.
RECOMMENDATION
That Council;
A. Note the report by Environmental Services to the General Committee Meeting dated 17th
June 2024, regarding a recommended Council policy position on the DAF Shark Control
Program.
B. Adopt the following policy position that:
1. Council continues to support the DAF Shark Control Program (SCP) under the
Queensland Shark Management Plan, with the vision of the SCP transitioning to
lower by-catch potential alternatives in waters adjacent to the Noosa LGA; and
2. Council to work alongside DAF to explore further opportunities to actively support
SharkSmart educational programs, and alternative bite mitigation trials where
appropriate.
C. Note Council’s other shark management responsibilities including;
1. Marine animal stranding response, noting this role requires resourcing for equipment,
materials and staff training and the use of contractors to enable Council to effectively
respond to stranding events; and
2. Consideration of signage investigation relating to dangerous marine animal
warnings across Council managed canal systems only (Noosa Waters).
REPORT
ISSUES:
Leading up to the whale migration season in SEQ waters (May to September), community concerns
are often reignited over the potential for marine mammal entanglements in shark control equipment
off the northern (Noosa) Sunshine Coast nearshore waters. Some individuals and community groups
have been actively campaigning for the removal of nets, and or drumlines for several years. Contrary,
ocean users including tourism operators and members of the surfing community often demonstrate
elevated concerns over the risks of shark attacks, particularly during periods of rain and high runoff
(bull sharks) and during cooler months (when white sharks are more common in Sunshine Coast
waters). Elevated shark risks concerns also occur during marine animal stranding events (July 2023
– whale carcass intercepted by Council 1nm off Granite Bay). To date, Council has not had a policy
position on the DAF SCP, and therefore is unable to provide guidance to the general community on
the matter. However as previously discussed, Noosa Council has actively supported SharkSmart
community awareness programs alongside DAF over the past two years and continues to support
the state managed SCP.
BACKGROUND (SCP)
Queensland’s Shark Control Program started in 1962, following a number of fatal shark bites across
the State. Shark control measures used by DAF in waters adjacent to the Noosa LGA may include
a combination of:
• nets and drumlines
• drone surveys
• SharkSmart community awareness programs
• Research and trials on alternative shark bite mitigation technologies (including drone trials).
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GENERAL COMMITTEE MEETING 17 JUNE 2024
Shark control equipment deployed within Laguna Bay, Noosa, regularly record the highest annual
catch rates of bull sharks across the Queensland Shark Control Program (DAF 2024).
During the annual humpback whale migration season from May to September, the chance of
humpback whales (and other cetaceans) becoming entangled in shark nets increases. It should be
noted that during this time of year, increased numbers of white sharks are also present within
Sunshine Coast waters. More than 30,000 humpback whales migrate along the Queensland
coastline each year and, on average, fewer than 6 become entangled in nets or drumlines (DAF
2024). It is also noted that other bycatch species may be incidentally captured in shark control
equipment. All catch data (including bycatch) is accessible to the public through the DAF web page:
https://www.daf.qld.gov.au/news-media/campaigns/sharksmart/research/data
Fisheries Queensland marine animal release teams (MART) are located on the Gold Coast,
Sunshine Coast and Mackay.
DAF minimises environmental impacts on non target species through:
• using shark control contractors to regularly check nets and drumlines for captured animals,
and releasing non-target shark species and other animals alive whenever possible
• using drumlines instead of nets where possible, as marine mammals are less likely to be
entangled in drumlines
• using electronic warning devices (pingers) to deter whales and dolphins from swimming near
nets and drumlines
• using alternative baits or apparatus configurations to reduce the incidences of dolphins and
turtles being caught on drumlines or in nets
• conducting a comparative trial of circle hooks and J hooks to assess the effect on catches of
target sharks, non-target sharks and other marine animals
THE QUEENSLAND SHARK MANAGEMENT PLAN (2021–2025)
The Queensland Shark Management Plan aims to reduce the risk of shark bites in Queensland
coastal waters by:
• maintaining nets and drumlines at beaches while continually improving operations to
minimise the impact on the environment,
• supporting research to understand how to reduce the risk of shark bites,
• undertaking trials of alternative shark bite mitigation technologies to determine their suitability
for Queensland conditions, and
• educating people to be SharkSmart every time they are on or in the water.
The Queensland Shark Management Plan is available for public viewing at:
https://www.daf.qld.gov.au/business-priorities/fisheries/shark-control-program/plan
THE STATE’S POSITION ON CHANGES TO THE SHARK CONTROL PROGRAM
The Queensland Government’s position on any potential future changes to the Shark Control
Program is detailed as per below, and within the Queensland Shark Management Plan;
“The Queensland Government is committed to reviewing and adapting the program in line with
emerging science and community expectations. The government always puts the safety of people
first and will not make changes until effective alternatives suitable for Queensland conditions are
identified and proven.”
DAF advised at the recent Council workshop, that the State government are awaiting the outcomes
of all current trials, along with recommendations from the Queensland Shark Control Program
Scientific Working Group to inform the review of the Shark Management Plan. Any potential changes
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GENERAL COMMITTEE MEETING 17 JUNE 2024
to the SCP, or the use of alternate technologies will only occur following this process.
COUNCIL’S CURRENT POSITION ON THE SHARK CONTROL PROGRAM
To date, Noosa Council supports the SCP under the Queensland Shark Management Plan through
the active participation in SharkSmart programs. Regarding scientific trials on alternative shark bite
mitigation technologies, the SCP Scientific Working Group remain the lead scientific advisory group
to the Queensland Government. DAF remains the lead agency and Council should accept and
support the State and the SCP Scientific Working Group regarding the suitability of shark bite
mitigation measures, in State managed waters adjacent to Noosa. Council will continue to support
SharkSmart community awareness programs and trials as appropriate.
NOOSA COUNCIL’S CONTRIBUTIONS TO THE SHARK CONTROL PROGRAM
At this time, Council’s role in shark management under the Shark Control Program is limited to:
1. Assisting DAF to educate the community to be SharkSmart, and
2. Supporting DAF and SLSQ to undertake drone trials as required, including the issuing of
permits
In 2022, Noosa Council, the NBRF and DAF launched the SurfSmart community awareness
program, to educate surfers and other ocean users on how to reduce the potential of shark
interactions in our local waters. Noosa Council will continue to work closely with DAF in future
SharkSmart community awareness programs under the Queensland Shark Management Plan.
Final evaluation of the SharkSmart drone trial (including Noosa) will be completed by mid-2024 to
inform the end of Management Plan review. The final evaluation of all trials will include an
assessment of cost-effectiveness and suitability to local Queensland conditions. The end of
Management Plan review will commence in late 2024 and will provide advice to government, in
consultation with the SCP Scientific Working Group, on future options for the Program from July
2025 onwards. Council will pursue all opportunities to provide input and feedback into this process.
COUNCIL’S SHARK MANAGEMENT OBLIGATIONS OUTSIDE OF THE DAF SCP
Council should also consider it's responsibility to mitigate shark bite risks to the community through
the following methods, outside of the SCP;
1. Marine animal stranding response
Under the Nature Conservation Act 1992, Noosa Council is solely responsible for the management
of marine animal carcasses that may wash ashore on Council managed beaches. In some situations,
Council may seek endorsement form the State and Commonwealth to intercept carcasses floating
in nearshore waters (this occurred in July 2023, with a carcass tracking towards Noosa Main Beach
intercepted by an ES contractor). It is well documented that whale carcasses in our local waters are
nearly always accompanied by large numbers of sharks, mainly bull, tiger and white sharks. As a
result, Council has an important role to play in human shark bite mitigation during marine animal
stranding response. Therefore, limited ES staff actively participate in SEQ regional marine stranding
response training alongside DAF, Marine Parks (QPWS) and adjacent Council’s. However, Noosa
Council is not adequately resourced with trained staff, equipment and materials to respond to a
traditional stranding event, whereby contractor availability, sea conditions or carcass condition does
not allow for towing and offshore disposal. Approximately 73 cetacean (whale) strandings occurred
from K’Gari to Tweed Heads during 2023 alone, 37 of these stranding where humpback whales
(Marine Parks 2023). It should be noted that all live strandings remain a responsibility of the Sate
(under Council support), prior to potential euthanasia, in which Council then becomes responsible
for carcass management (chemical euthanasia of animals requires landfill disposal).
2. Bull shark risks within Council managed canal systems
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GENERAL COMMITTEE MEETING 17 JUNE 2024
Council should consider the presence of dangerous marine animals in Council managed canal
systems only. Noosa Council and NBRF have recently partnered with the USC to undertake a Bull
Shark Research Program across Noosa and Sunshine Coast waterways. Considering the presence
of bull sharks within the Noosa Waters canal system is well known, Council should consider a marine
animal warning advisory signage investigation within the Noosa Waters canal system, to align with
public information standards set by other SEQ Councils. The timing of such may best align with the
completion of the current Bull Shark Research Program.
Link to Corporate Plan
Under the Corporate Plan, the Noosa Environment Strategy identifies key strategies, outcomes, and
measurable targets related to our environment.
Although the strategy primarily emphasises environmental conservation and sustainability, it also
recognises the importance of community environmental values and public safety. The Environment
Strategy takes a proactive approach to protect our marine (and terrestrial) ecosystems, and encourages
responsible management of the fauna and flora within, for the benefit of both current and future
generations. It is also noted within the Environment Strategy that community education is a vital
component in protecting our natural values, and this is evident in Environmental Services pro-active
contributions towards SharkSmart educational programs to date.
Previous Council Consideration
The following Motions were moved by Council during the Ordinary Meeting dated 16th May 2024;
1. Role and Policy Decision: The Report from ES should clearly outline the Council’s role and
policy position on Queensland SCP, the use of shark nets and drumlines, including any
ongoing and future trials.
1. Advocacy and Support to the State: The Council recognises the importance of advocating for
and supporting matters that are significant to our community. The Chief Executive Officer is
requested to identify and articulate these matters in the report. This may include, but is not
limited to the following;
• Continued advances in reporting
• Investigation of temporary net relocation during specific periods
• Continuous Evaluation of Technological Advancements
Finance
Expenditure
Activity Details
Committed (23/24) Proposed
Recommendations
Senior Wildlife
Position required to coordinate
Council to support DAF SCP Principal Officer
the tasks and actions required
through trials and SharkSmart Environment Officer (currently
to support the DAF SCP,
Programs (acting) proposed in
including community liaison.
24/25 budget)
Future budget Considerations
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GENERAL COMMITTEE MEETING 17 JUNE 2024
Funds to purchase equipment
and materials to enable Noosa
Council to undertake initial
response to whale stranding
events under the NCA. In-turn,
mitigating shark risks to ocean
Marine animal (whale) stranding $12,500 users during strandings. Note
response (site containment and Replacement of the Senior Wildlife Officer
preparation of carcass for (24/25 budget used materials would be responsible for the
removal) proposal) programs coordination. It is
noted that beyond the
equipment and resources
required for Council to respond
to a stranding, contractor fees
for carcass removal will also
apply.
The design and install of
approximately 15 advisory
Dangerous marine animal signs in key public use areas
stranding advisory signage – Nil $15,000 surrounding Noosa
Noosa Waters canal system Waters. Note that this activity
will require staff resources
from ES and IS.
Risk & Opportunities
Scenario 1: Council does not adopt a clear policy position of the DAF SCP.
Potential Risk: Negative environmental community perception - Council may be seen to exclude
marine life from our environmental values within Noosa Shire. Having no policy position on the SCP
does not align with a number of themes within the Noosa Environment Strategy.
Opportunity: A clear policy position would enable Council to effectively support DAF in future
SharkSmart and alternative bite mitigation trials. Council would also be able to effectively address
and respond to community requests regarding Council's position and pro-active, positive
involvement in the SCP.
Scenario 2: Council does not consider to adequately fund or resource marine animal stranding
response.
Risk: Council in unable to adequately contain and prepare a carcass for removal. Council also has
a delayed response time and incurs significantly higher contracted costs, negative media attention
and poor community outcomes. The presence of whale carcasses on beaches almost always results
in the presence of large sharks within the surf zone, and an ineffective and delayed response may
pose a significant liability risk to Council regarding human safety.
Scenario 3: Council does not investigate the suitability of dangerous marine animal advisory
signage at Council managed canal systems.
Risk: Noosa Council does not align with other South East Queensland Council's in this area.
Potential liability risks may occur to Council in the event of a negative public interaction with a
dangerous marine animal within Council managed canal systems. Council may choose align the
signage investigation with the outcomes of the Bull Shark Study currently occurring within the Noosa
River.
Consultation
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GENERAL COMMITTEE MEETING 17 JUNE 2024
External Consultation - Community & Stakeholder
Noosa Council supported the delivery of a SharkSmart - SurfSmart community education campaign
in 2023 alongside DAF and The NBRF. The objective of the campaign was to increase awareness
on how ocean users may avoid interactions with sharks. This was achieved through workshops with
key stakeholder groups, and the distribution of community awareness material highlighting the
environmental factors which may increase the risk of shark presence and bites.
Internal Consultation
Departments consulted:
Office of the CEO, Mayor & Community Services Corporate Services
Councillors
x Mayor & Councillors Director Director
x Chief Executive Officer Community Development Financial Services
Executive Officers Sport & Active Lifestyles Fleet
Community Engagement Arts & Culture Revenue Services
People & Culture Community Connection ICT
Governance Customer Experience Procurement
Commercial Property
Strategy & Environment Development & Regulation Infrastructure Services
x Director Director Director
Strategic Land Use Planning Development Assessment x Infrastructure Planning,
Design and Delivery
Economic Development & Local Laws Civil and Asset operations
Destination Management
x Environmental Services Environmental Health Waste
Innovation & Digital Hub Building & Plumbing Building & Facilities
Property / Permits Disaster Management