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Kayaking and canoeing (inland water)

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​​​​​​Guideline review date: 24 September 2025

This guideline is provided to support schools in implementing the managing risks in school curriculum activities procedure.

The CARA planner (DOCX, 232KB) must be used for the specific school context in conjunction with this guideline considering additional risks, hazards and controls and including environmental, facility, equipment and student considerations.

For activities beyond the scope of this guideline, complete a CARA record using the CARA generic template (DOCX, 98KB).

Activity scope

This guideline demonstrates the minimum safety standard for student participation in canoeing (a narrow-beamed pointed vessel with a rigid hull propelled by a paddle) and/or kayaking (a topped, narrow-beamed vessel that floats and is propelled by a double-bladed paddle) in inland water (rivers inside seaward entrance, creeks, canals, lakes and streams) up to and including Grade 2 waters as an activity to support curriculum delivery.

Note: This activity does not include kayaking in smooth or partially smooth waters, coastal waters or open seas and oceans or canoeing on Grade 2 waters and above. For activities in these waters, or navigable rivers, creeks or streams within declared port waters, refer to the CARA guideline for kayaking (enclosed and coastal waters).

The Department of Education is committed to ensuring that curriculum activities are planned for and managed in accordance with the Work Health and Safety Act 2011 (Qld), to ensure, as far as is reasonably practicable, the safety of students, staff and others.

Activities that pose an unacceptable risk to students are not recommended as part of an education program. These activities include, but are not limited to, unstructured free-swim activities and breath-holding/underwater games.

Depending on the scope of this activity, other risk assessments may be required when planning. Curriculum activities encompassing more than 1 CARA guideline (e.g. swimming in locations other than pools while camping) must comply with the requirements of all CARA guidelines appropriate to the activity.

Schools should consider conducting this activity at a Department of Education Outdoor and Environmental Education Centre (O&EEC), consult with O&EEC centre staff for risk assessment requirements.

For activities conducted at a non-Department of Education venue, and/or when engaging external expertise, request written risk assessment advice and attach it to this CARA record.

For activities conducted off-site, schools must comply with the school excursions procedure.

Risk level

High risk
Kayaking and/or canoeing on flat water and Grade 1 waters. (Grade 1: Easy—slow to medium flowing water with very small, regular waves or riffles. Relatively few obstacles, with an easy path to find and follow. Suitable for novices).
Extreme risk
Kayaking on Grade 2 waters. (Grade 2: Medium—rapids are straightforward with medium sized, regular waves. The path through rapids can be clearly seen from the water and is often indicated by well-defined chutes or Vs of water. There are some obstacles that require manoeuvring around, but paddlers with a good command of basic strokes can easily miss them).

Refer to inland water paddle-craft good practice guide (PDF, 737KB) for water definitions.

Activity requirements

If any requirement cannot be met, the activity must not occur.

A registered teacher must be appointed to maintain overall responsibility for the activity.

Teachers, in collaboration with other adult supervisors of the planned activity, determine additional risks, hazards and control measures relevant to the activity and the specific school/group circumstances in order to lift the safety standard above the minimum identified in the CARA guideline.

Consult review comments from previous CARA records to improve safety standards based on the advice from the previous supervisors of the activity at the school.

Prior consultation and collaboration with local expertise (e.g. venue manager, lifeguard) is required for local advice, emergency support mechanisms and additional supervision requirements to ensure participant and public safety.

A qualified instructor/guide is to be appointed to plan and coordinate the activity to consider the Australian Adventure Activity Standard, inland water paddle-craft good practice guide (PDF, 737KB), Paddle Australia—safety guidelines and marine park zoning and designated areas (for restricted areas).

Permission/permits are required to be obtained from land managers (e.g. Department of the Environment, Tourism, Science and Innovation, local councils or private landholders), if applicable.

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Supervision

Principals, in consultation with the qualified adults, make final supervision decisions for the activity that considers the local context.

Appropriate adult supervision must be provided to manage the activity safely (i.e. prevent an incident from occurring and manage an incident if one were to occur, including managing emergency situations). At no time should students be relied upon to recover a person in difficulty. The principal must give active consideration to the minimum standards set in the CARA guideline for the activity, the CARA planner and the risk assessment when determining the appropriate level of supervision.

See number of adult supervisors below.

Prepare a supervision plan to prevent drowning that considers the advice provided in this CARA guideline. Consider Australian Adventure Activity Standard, inland water paddle-craft good practice guide (PDF, 737KB), and Paddle Australia safety guidelines for support when supervision planning.

Where a lifeguard service is available, schools are to collaborate with the lifeguard on the contents of the CARA record prior to the activity for advice and to address any queries they may have. Note: The presence of a lifeguard service does not absolve the school of any supervision requirements unless secured for the sole purpose of the activity.

Participants must adhere to all rules and advice communicated by the local lifeguard service, facility operator/owner and any safety signage at the facility/location.

Before the activity, all adult supervisors:

  • must be familiar with the contents of the CARA record, including the emergency and supervision plans.
  • must assess weather conditions and obtain accurate information on tides, depths, currents and other expected water conditions (e.g. wind direction) prior to undertaking the activity, inspecting the intended location in order to identify variable risks, hazards and potential dangers. Consult inland water paddle-craft good practice guide (PDF, 737KB)—5.2 Weather trigger points. Cease the activity if conditions become unfavourable or visibility is poor.

During the activity, all adult supervisors:

  • must provide active and direct supervision—be constantly vigilant, attentive and rescue ready
  • must comply with control measures from the CARA record and adapt as hazards arise
  • must not rely on students to recover a person in difficulty at any time.

The activity must be suspended if the conditions become unfavourable (e.g. poor visibility, extreme temperatures, thunderstorms).

Number of adult supervisors

Principals, in consultation with the qualified adults of the activity, determine the final number of supervisors to fulfil instructional, emergency and supervision roles for the local context that consider inland water paddle-craft good practice guide (PDF, 737KB), and Paddle Australia safety guidelines the nature of the activity, students' ages, abilities and specialised learning, access and/or health needs. In some instances, the final supervision ratio may be 1:1.

To support decisions about the number of qualified adults required for the activity, confirmation of student water safety and swimming ability is required prior to participation.

See FAQs for further support.

The process is determined by the school and must consider the specific aquatic environments in which the activity will take place. Consult the sequence of competency water safety and swimming education program for support in determining age-appropriate suitability and consider student self-rescue skills in the specific aquatic environment.

Considerations when determining the supervision ratio and group size must include:

  • the type of water body being paddled
  • water body conditions
  • access and egress conditions
  • weather conditions
  • visibility
  • ability of participants to reliably self-rescue or assisted rescue
  • the duration of the activity
  • participant swimming ability
  • the size and design of the paddle-craft
  • the number of participants in each paddle-craft
  • the suitability of the paddle-craft for the type of activity and environment
  • the suitability of the paddle-craft for the participants.

One adult supervisor is required to either canoe/kayak with the learners or travel in a powered vessel in close proximity to the learners under instruction. If using a power boat, the adult supervisor operating the power boat must have all of the below:

Minimum standards for supervising students in the water

Water body/situation Supervision requirement 1-seat craft 2-seat craft 3-seat craft

Confined body of inland water (e.g. dam)

Min. 1 qualified guide/instructor

Up to 8 craft* (8 participants) per guide/instructor

Up to 6 craft* (12 participants) per guide/instructor

Max. 6 craft* (up to 12 participants) per guide/instructor

Inland water that is not white water

Min. 1 qualified guide/instructor

Up to 6 craft* (6 participants) per guide/instructor

Up to 4 craft* (8 participants) per guide/instructor

Max. 4 craft* (12 participants) per guide/instructor

Grade 1 water

Min. 1 qualified guide/instructor

Up to 4 craft* (4 participants) per guide/instructor

Up to 4 craft* (8 participants) per guide/instructor

1 qualified instructor: Up to 2 craft (6 participants)

2 or more qualified instructors: Up to 4 craft (8 Participants) per guide/instructor

Grade 2 water

Min. 2 qualified guides/instructors

Up to 4 craft* (4 participants) per guide/instructor

Up to 4 craft* (8 participants) per guide/instructor

Not recommended

*excludes guide/instructor craft

If the minimum safety standard cannot be met, modify the activity (or elements of it) and use the hierarchy of controls to implement alternative control measures to meet or exceed the minimum safety standard (e.g. reduce the number of students participating at any one time).

See frequently asked questions (FAQs) for further support.

Supervisor qualifications

Qualifications support the minimum safety standard for this activity. Principals make final decisions* in determining supervisor capability (competence, relevance and currency) and whether the activity leader meets an appropriate teaching standard.

*See FAQs for further support.

Support for decision-making is provided by industry standards, for example, inland water paddle-craft good practice guide (PDF, 737KB), Paddle Australia—safety guidelines.

All adult supervisors must comply with the working with children authority—blue cards procedure.

Qualified adults for the activity

Recovery/emergency—CPR, first aid, rescue

Adults at the venue, including registered teachers, engaged for recovery/emergency are to have current knowledge, judgement, technique and physical ability to carry out safe water rescues and enact an emergency procedure.

Supervisors must have CPR and first aid qualifications relevant to the activity. Emergency qualifications may include:

An adult with concussion management knowledge or training is recommended. Consult concussion in sport resources.

High risk activities

At least 1 adult supervisor is either:

Extreme risk activities

At least 1 adult supervisor is either:

  • a registered teacher with competence (knowledge and skills) and experience in kayaking and canoeing (inland water) and the potential hazards and with Certificate III in Outdoor Leadership or Certificate III in Sport, Aquatics and Recreation, similar or higher, including specialisations in appropriate kayaking and canoeing activities
  • an adult supervisor, working under the direct supervision of a registered teacher with Certificate IV or Diploma in Outdoor Leadership or similar, with specialisations in relevant kayaking and canoeing (inland water) units.

Refer to the competencies outlined in the inland water paddle-craft good practice guide (PDF, 737KB) for guidance.

See FAQs for further support.

Facilities and equipment

The qualified adult supervisor of the activity, in consultation with the principal, determines the requirements for facilities and equipment appropriate to the local context.

Paddle craft must be capable of being towed by rope and grasped by hand.

Sea-worthy craft and paddles suitable for the activity and water grade as outlined in Section 6.1.3 of inland water paddle-craft good practice guide (PDF, 737KB).

One or more spare paddles suitable for the activity must be carried by the adult supervisor.

Paddles to be appropriate to the type of craft and environment in which they are being used and appropriate length and size for participants.

Equipment must be sized to match the ability and strength of students.

Lifejackets suitable to the location that comply with Australian Standards for PFD Level 50 or PFD Level 50S (previously known as PFD Type 2 and PFD Type 3) that are brightly coloured and are the correct size for the wearer and adjusted correctly must be worn at all times while on the water. Inflatable lifejacket designs (i.e. automatic or manual inflating lifejackets) should NOT be used with paddle craft.

A whistle attached to the buoyancy aid for emergency use is recommended to enable a person to attract attention.

Participants must wear secured and correctly fitted helmets that comply with CE EN 1385:2012 for the duration of the activity when on moving water, where during the activity obstructions could impact the head (e.g. paddling among rocks, during rescue practice and when playing on-water games, for example, kayak polo, tag games, where movement outside of the craft occurs on very slippery surfaces). Refer to the Paddle Australia safety guidelines for helmet specifications.

Prescription spectacles and sunglasses, if worn, secured with a suitable restraint.

Safety, rescue and repair equipment suitable for the activity that conforms to Paddle Australia safety guidelines must be available that is quickly and easily accessible to include (but not limited to):

  • a whistle appropriate for water environments
  • a suitable means of cutting rope
  • throw-bags for Grade 1 or above waterways or rapids
  • a releasable means of towing a paddle-craft
  • carabiners, pulleys and slings
  • static low stretch rope of appropriate length for the river width or environment.

Access to waterways must be available for emergency vehicles and vessels.

Equipment correctly waterproofed and stowed securely in the craft.

Ensure that no single navigation system to be relied upon. Where an electronic system (e.g. GPS) is used, have spare batteries and another position-fixing method available.

Shade, water and food must be available.

All equipment must be used in accordance with the manufacturer's instructions.

Establish and employ a process for checking for damage for all equipment used in the activity.

A retirement schedule must be developed to replace plant and equipment by manufacturers' nominated expiry date or when significant wear causes a hazard.

Common hazards and controls

Further to those listed, include any additional hazards and control measures considering the local context of the activity.

Environmental hazards Control measures

Animal bites/diseases
Stings, poisoning, infection

Adhere to established practices regarding the use of insect repellent, outlined in insect viruses and allergies

Biological hazards
Body fluids (e.g. blood, bowel motions)

Manage open wounds before, during and after the activity. Consult infection control guidelines and Queensland Health's exclusion periods for infectious conditions poster (PDF, 1.4MB) for first aid and hygienic practices

Dangerous marine life
(e.g. crocodiles, sharks, stonefish, marine stingers, sea snakes, blue-ringed octopus, cone shells, cyanobacteria, coral—scrapes)

Check with the local authority (e.g. local government) for the presence of known water contaminants (e.g. blue-green algae) or other marine hazards (e.g. stonefish) at the location.

Look for and obey warnings and/or safety signs.

Follow Queensland Government dangerous marine life and Surf Life Saving Queensland marine stinger safety advice.

Marine organisms are not to be handled and contact is to be avoided.

Continually assess threat of dangerous marine life. Immediately move the participants to a safe location if dangerous marine life is detected or suspected.

Ensure stinger suits and/or footwear is worn in the water when appropriate (e.g. enclosed footwear with thick soles when swimming in creeks or estuaries where dangers such as stonefish may be present)

Environmental conditions
Weather, surrounds

Assess weather conditions prior to undertaking the activity, inspecting the intended location in order to identify variable risks, hazards and potential dangers.

Follow the school's sun safety policy, including appropriate swimwear (e.g. swim shirts), sun protection (e.g. sunscreen) and shade facilities when outside.

Follow the managing excessive heat in schools guidelines when participating in very hot or extreme heat conditions.

Participants to remain aware of their position in the training area, distance from shore, the depth of the water and other obstacles.

Adult supervisors negotiate areas of moving water immediately before students.

Crafts to negotiate rapids 1 at a time

Water contamination
Parasites, water borne diseases, chemical run off, algal blooms

Check with the local authority (e.g. local government) for the presence of known water contaminants (e.g. effluent, blue-green algae) or other marine hazards (e.g. stonefish) at the location

Water temperature

Manage cooler water temperatures with additional control measures (e.g. shorter in-water time, wetsuits etc.). Note: Sudden temperature changes may trigger seizures

Facilities and equipment hazards Control measures

Activity location

Location must be suitable for the activity being undertaken. Undertake a reconnaissance of new or infrequently used locations to ascertain suitability. Undertake a reconnaissance of new or infrequently used venues to ascertain suitability.

Assess suitability of surrounds and reach of water when selecting a location. Consider local water conditions and foreseeable hazards such as:

  • tidal flow, currents and turbulence
  • use by other watercraft and traffic patterns
  • water temperature, depth and visibility
  • underwater hazards (e.g. rocks and rapids, turbulence from a waterfall)
  • dangerous marine life
Manual handling
Lifting equipment

Use correct manual handling processes when lifting, lowering, pushing, pulling or carrying. Instruct students to straighten backs and bend knees when lifting canoes/kayaks.

Ensure a minimum of 4 participants carry a canoe/kayak

Vehicles/vessels

Continually assess threat of vehicles or vessels (e.g. other water craft when paddling and when entering or leaving the water) and vehicles when loading/unloading canoes/kayaks

Student considerations Control measures

Clothing

All supervisors are to be readily identifiable and be appropriately dressed to perform an immediate rescue at all times.

Participants must wear personal protective equipment appropriate to the conditions to protect against sun, wind, rain, cold (e.g. hats, wetsuits, stinger protective swimwear, thermal wear, fleece, enclosed footwear). Adhere to the Surf Life Saving Queensland marine stinger risk management guidelines, if appropriate

Injury

Participants to work far enough apart that they are not struck by paddles.

Students aware of the location of emergency and first-aid equipment

Physical exertion
Exhaustion, heat/cold stress

Conduct appropriate lead-up activities.

Continually monitor students for signs of distress (e.g. fatigue, exhaustion, illness, hunger, dehydration, hypothermia, difficulty breathing and hyperventilation).

Allow all students periods of rest from repetitive paddling (this may be resting/floating on the water, not necessarily landing).

Adopt system of signals to clearly communicate the need for assistance if in difficulty.

Ensure drink breaks occur regularly. Make water available for individual participants between drink breaks

Student issues

Ensure all students in the water are in sight of at least 1 qualified adult supervisor at all times.

Instruct participants to call or signal for assistance if a problem cannot be rectified immediately.

Implement procedures (e.g. buddy system, roll marking mechanisms) to account for all participants before, during and after the activity

Visibility

Have students wear easily identifiable clothing (e.g. high visibility rash vest).

Ensure staff can easily recognise those students with health support needs (in and out of the water) and are familiar with their needs

Additional links

Disclaimer

This information is developed and distributed on this website by the State of Queensland for use by Queensland state schools only.

Use or adaptation of, or reliance on, this information by persons or organisations other than the State of Queensland is at their sole risk. All users who use, adapt or rely on this information are responsible for ensuring by independent verification its accuracy, currency and appropriateness to their particular circumstances. The State of Queensland makes no representations, either express or implied, as to the suitability of this information to a user's particular circumstances.

To the full extent permitted by law, the State of Queensland disclaims all responsibility and liability (including without limitation, liability in negligence) for all expenses, losses, damages and costs arising from the use or adaptation of, or reliance on, this information.

Links to external websites are for convenience only and the State of Queensland has not independently verified the information on the linked websites. It is the responsibility of users to make their own decisions about the accuracy, currency, reliability and correctness of the information at these external websites.

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Last updated 30 September 2025