Since the release of the Queensland Shark Management Plan 2025-2029 covered in our May 2025 Noosa 360 update, we have received more responses to our advocacy from the Minister for Primary Industries as well conducted further research, which is collated below.

In summary, the current Queensland Government maintains the position that until alternatives are proven effective at reducing the risk of shark attacks, the QSCP will continue to use mesh nets and traditional drumlines.

As outlined by the KPMG Shark Control Program Evaluation Report of 2024, Queensland stands alone as the only jurisdiction that keeps nets in the water year-round. Sandy is working with Noosa electorate stakeholders to ascertain a common position to take forward, considering recommendation 3.2 of the report for a trial of removing shark nets during the winter whale migration to reduce entanglements.

After reading the following information, we would appreciate any feedback from our residents via noosa@parliament.qld.gov.au to inform ongoing advocacy.

Research

Alternatives to shark nets

Reported to our office has been that below are all safe alternatives to shark nets:

  • drone surveillance.
  • shark listening stations and tagging programs.
  • smart education and SharkSmart apps.
  • personal deterrent devices.
  1. The SharkSmart Drone Trial which has just moved from trial phase to a full program in 2025, is operating on weekends, public holidays and Queensland school holidays, flying over popular beaches to detect sharks from the air and alert beach users. The hours of operation vary depending on weather conditions, however, usually start when beach patrol opens in the morning, and fly twice every hour, until around midday. Each flight is approximately 20 minutes.
  2. Catch-alert or SMART drumlines are a device that uses satellite technology to alert shark contractors that an animal has been caught. These have been trialled off the Capricorn Coast (Yeppoon) since 2021, with others conducted in Mackay and Cairns in 2024. Trial regions only include beaches in the Great Barrier Reef Marine Park (see Tribunal decision below). SMART drumlines require contractors to be ‘on-call’ 24-7, to release captured animals withing ~1 hour of alert. The previous government in Queensland was supportive of gradual change occurring across the QSCP – namely the rollout of more SMART drumlines to replace traditional ones, starting with those located in Marine Parks across Queensland.

Brief history

The Queensland Shark Control Program (QSCP) has been in operation since 1962, operating across 10 coastal locations (Gold Coast to Cairns) including Noosa Main Beach, covering 86 individual beaches according to ‘Declining trends in annual catch rates of the tiger shark (Galeocerdo cuvier) in Queensland, Australia’. The program was implemented to catch and kill potentially dangerous shark species to reduce the risk of a shark bites or human fatalities occurring.

383 traditional drumlines and 27 nets are currently in use at the following locations:

Many non-target species including rays, fish, turtles, dugongs and cetaceans are incidentally injured or killed each year in nets. Since its inception in 1962, the QSCP had maintained minimal changes to gear types at each of the program beaches. This also included minimal changes to hook types (using traditional J hook style, often swallowed causing gill hooking), and consistency of bait type (usually mullet or shark). Rebaiting and nets checks occurred every two days. Whale entanglements can be hazardous for the Department of Agriculture and Fisheries release crews and rescue responders, who must intervene in challenging conditions.

There are ongoing trials using circle hooks in some locations, which reduce injury as they are designed to hook in the corner of the jaw. This is important for non-target species wellbeing on release.

Tribunal findings

In 2017, the Humane Society International challenged the issuance of a 10-year permit by the Great Barrier Reef Marine Park Authority (GBRMPA) to the Queensland Department of Agriculture and Fisheries (QDAF) to operate a lethal Shark Control Program. On 2 April 2019, the Administrative Appeals Tribunal (AAT) found ‘overwhelming’ evidence that shark culling did not reduce the risk of shark bite but did pose a risk to the health of the Reef. They reported that the lethal component of the QSCP was “superficially attractive albeit unscientific,” and “out of step with national and international developments.” The KPMG report mentioned earlier provided a review of the previous shark management plan only, and did not consider nor mention the AAT report or scientific evidence regarding the efficacy of the QSCP.

According to the report, Queensland stands alone as the only jurisdiction that keeps nets in the water year-round and Recommendation 3.2 within recommends a trial of removing shark nets during the winter whale migration to reduce entanglements.

The court orders mandated that existing drumlines may remain in place, but that:

  • drumlines were to be checked daily – to limit the death toll of wildlife,
  • the target list of sharks to be shot and killed when found alive to be abolished,
  • large tiger, bull, and great white sharks were to be tagged and relocated offshore when found alive, and
  • trials of SMART drumlines are to be implemented ‘progressively’ throughout the GBR.

Scientific evidence that shark culling / mitigation does not significantly reduce shark interactions is demonstrated in Huveneers et al. 2024, McPhee et al 2021, Mehmet et al. 2021.

KPMG report

As outlined in our May 2025 Noosa 360 update, the KPMG report outlined that the current operational equipment, nets and drumlines, do not achieve the desired ecosystem outcomes. Thirty-three detailed recommendations were made at the end of the report across three main categories incorporating improvements to QSCP policies, processes and initiatives. As mentioned earlier, Recommendation 3.2 recommends a trial of removing shark nets during the winter whale migration to reduce entanglements.

Within the new QSCP, investment into whale deterrent research (e.g. acoustic pingers on nets) was prioritised over the recommendation for any net removal trials during the annual humpback whale migration even though ‘anecdotally’ the acoustic pingers have been deemed ineffective, and our office are awaiting further evidence-based clarification on this.

Other operational recommendations were centred around reducing the environmental impact of the program, for example, replacing all J hooks on drumlines with circle hooks, expanding SMART drumlines to all state marine parks (including those gear operating in Moreton Bay Marine Park (MBMP) in Caloundra and off North Stradbroke Island). A full copy of the KPMG report with further information is available at www.bit.ly/KPMGSharkReport2024.

Summary

In 2024, a Noosa MP Survey revealed that 75.06% of responders did not support the continued use of shark nets at Noosa Main Beach. As a result, Sandy Bolton MP’s office met with representatives of the Noosa Shark Net Working Group comprising of fourteen major local stakeholders to obtain a position regarding the removal of shark nets during whale migration season. We are currently waiting on a response from all representatives; however, Noosa Council recently voted in favour of the following in italics:

9.1.  TRIAL REMOVAL OF MESH NETS DURING WHALE MIGRATION SEASON

Council Resolution

Moved:

Cr Frank Wilkie

Seconded:

NA

That Noosa Council write to the State Government commending them on the KPMG review

of the Queensland Shark Management Plan 2021-2025 and request they trial the removal of

mesh nets, with associated education and consultation, during whale migration season in

Noosa while continuing the use and assessment of other measures, such as aerial

surveillance drones and catch-alert drumlines, as per the KPMG review recommendations.

Responses from the Minister for Primary Industries

With the state government identifying Peregian Beach North as a potential site for more shark nets, this raises questions given considerable community opposition, and we sought from the Minister for Primary Industries the rationale for this. In addition, requested further information and for increased funding and resources for the ‘Innovation Pipeline’ to fast-track the development of new technologies to replace nets currently in use.

Sandy also asked a Question on Notice in Parliament requesting when the trials of removing shark nets during the winter whale migration would begin, as per recommendation 3.2 in the KPMG Shark Control Program Report.

The following responses have been received in italics, which outline the current government’s position.

Question on Notice response

The purpose of the Shark Control Program is to reduce the risk of shark attacks at specific beaches across the State. While the program will seek to minimise negative impacts on marine ecosystems, this is not a purpose of the program. The Queensland Government’s position is that human safety must come first, above all else.

The Shark Management Plan 2025 to 2029 (the Plan) which was released on 25 May 2025 prioritises swimmers’ safety and seeks to reduce the risk of shark attacks. The Plan combines proven safety measures like shark nets and drumlines at more Queensland beaches while prioritising innovative technologies such as whale-deterrent measures and further research.

The Queensland Government adopted all recommendations from the KPMG Report which prioritised human safety first. The KPMG report confirmed shark control methods such as nets and traditional drumlines are the most effective at preventing shark attacks.

The Plan is supported by an additional investment of $88.2 million over four years under the Shark Control Program (the Program).

Until alternatives are proven effective at reducing the risk of shark attacks, the Program will continue to use mesh nets and traditional drumlines on a year-round basis.

More than 40 000 whales migrate along the east coast of Australia each year. On average, six whales interact with Program equipment each year, which is about 0.02 per cent of the migrating population.

Under the Plan, shark nets and drumlines will be serviced daily (weather permitting) all year round. Daily servicing allows for improved identification of, and response times for release of non-target species. Professional Marine Animal Release Teams are located at Mackay, the Sunshine Coast and the Gold Coast, specially trained in best practice safe-release techniques and ready response to reports of whale entanglements.

Further response provided in writing

The Plan and increased investment of an additional $88.2 million into the Program is being delivered following the Government’s consideration of the recommendations from the KPMG Shark Control Program Evaluation Report (the Report). The report identified 33 recommendations. Any recommendation or measure that prioritises human safety first, above all other factors, has been adopted by the Queensland Government.

Reducing Environmental Impacts

As advised, any recommendation or measure that prioritises human safety first, above all other factors, has been adopted by Government.

Catch alert drumlines will not be expanded into state marine parks because traditional drumlines are more effective. This has been confirmed in the KPMG report. Between 2022 and 2024, 331 sharks were caught in traditional drumlines, compared with 207 sharks with catch alert. The Report found 21.3% of Tiger Sharks and 31.3% of Bull Sharks caught with catch alert returned to the drumline and were re-caught. This suggests a lower effectiveness in preventing human-shark interactions than traditional drumlines.

Catch alert drumlines only operate during daylight hours, leaving key times of the day (including dusk and dawn) without coverage. The Report also found that catch alert drumlines had a 53% smaller target catch compared to traditional drumlines, a high frequency of false alerts, and a high incidence 51.1% of marine animals failing to activate the satellite buoy when hooked.

Under our government’s new Shark Management Plan, shark nets and drumlines will now be serviced daily (weather permitting) all year round. Increased servicing will improve survivability for all non-target species caught in this equipment.

As you will be aware, whale entanglements are rare. More than 40,000 whales are expected to travel the Queensland coastline this year. During the past five years, an average of eight whales have interacted with the Queensland Program gear each year. This is less than 0.002% of the migrating population. Within the last 10 years, I am informed only one whale has died while entangled.

The Queensland Government’s increased research into improved whale deterrent technologies and best practice marine animal release will minimise environmental impacts of the Program during the whale migration season. My department leads an experienced team of marine science professionals who are specifically trained to release whales in the unlikely event of any interaction with Program gear.

SharkSmart Drone Program

The former government’s trial of drones at 10 beaches has now been made a permanent program under our government. Under our new Plan it will be doubled to 20 beaches by 2026-2027. The final locations will be determined after further detailed assessment and consultation, including with Surf Lifesaving Queensland.

Emerging Technologies

Commencing this financial year, new research into emerging technologies will be conducted in consultation with the Shark Control Program Scientific Working Group. Any current trials for these technologies will be evaluated using a new evaluation framework to determine suitability for implementation in the Program. I am pleased that approximately 60% of the additional funding announced for the program is for research, trials, education, and the SharkSmart drone program.

Existing Trials

Catch alert drumlines will be only used where required under current Commonwealth legislation or approvals. Trials at Cairns, Mackay, and the Capricorn Coast will continue. These trials will be expanded to other areas within the Great Barrier Reef Marine Park in accordance with permit requirements.

The trial of circle hooks will be evaluated in 2025. These results will inform future use of circle hooks in the Program.

The results from the “Enhanced Aerial Shark Detection Trial’ are currently being analysed by the Department of Primary Industries. If technologies are effective, they will be assessed for incorporation into the SharkSmart Drone program.

Marine Animal Release Team

The Marine Animal Release Teams (MART) are already on call 24 hours a day, 7 days a week and attend to call outs depending on safe working conditions (e.g. weather).

There are significant challenges to tagging whales. Tags cannot be applied during disentanglement operations as the tag could become an additional point of entanglement or may become dislodged and lost. Tags may be applied after a whale is successfully released. However, the whale is usually mobile at this point, creating significant safety and logistical challenges.

The Sea World Foundation supports MART during some disentanglement operations. They are currently investing in and supporting research to tag whales post-release to monitor their behaviour.

I reaffirm this government’s first and foremost focus is on protecting human safety on our beaches, which is complemented by a record investment in new, innovative technologies.

Queensland’s international tourism reputation as a safe place to enjoy some of the world’s best beaches is important to the Crisafulli Government. I note how important local tourism is to the community you represent and the many small businesses and jobs it underpins.

 

Further information

To read the Queensland Shark Management Plan 2025-2029, visit https://www.publications.qld.gov.au/dataset/queensland-shark-control-program/resource/833f5143-055f-4fe2-891a-9a60d0635d73

To view previous updates regarding our advocacy on this, please visit Noosa 360 at www.sandybolton.com/?s=shark

For the results of the Noosa MP Survey on shark nets, visit www.sandybolton.com/shark-nets-on-noosa-main-beach-noosa-mp-survey-results-april-2024.