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Swimming in locations other than pools

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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 (DOC​X, 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 curriculum activities conducted in locations other than swimming pools (e.g. water safety and swimming education program, skill practice sessions). Such locations include clear, shallow, calm and confined swimming areas at natural venues (e.g. dams and non-surf beaches), clear, deep and/or flowing swimming areas (e.g. lakes, rivers, deep non-surf beaches and dams), bodies of water exposed to currents, strong winds, large waves and/or access to open waters (e.g. beaches exposed to rip and swell conditions, and lakes or rivers exposed to currents).

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 a swimming education program. These activities include, but are not limited to, unstructured free-swim activities and breath-holding/underwater games.

For swimming activities in pools, use the CARA guideline for swimming in pools.

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.

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.

For activities conducted as part of representative school sport programs, schools should consult with Queensland School Sport.

Risk level

High risk
Activities conducted in a water location other than a swimming pool.

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. lifeguard service, marine park managers) for local advice, emergency support mechanisms and additional supervision requirements to ensure participant and public safety.

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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 Surf Life Saving Australia's (SLSA) beachsafe and/or Royal Life Saving Society Queensland's (RLSSQ) guidelines for inland waterways safety 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 (if applicable) prior to undertaking the activity, inspecting the intended location in order to identify variable risks, hazards and potential dangers.

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 SLSA's beachsafe and/or RLSSQ's guidelines for inland waterways safety, 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 frequently asked questions (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.

Minimum standards for supervising students in the water

2 x qualified adults for up to 10 students in the water + 1 x additional qualified adult for up to every 10 students thereafter (e.g. 20 students = 3 qualified adults).

At least 1 adult at the venue is required to have current recovery/emergency competence and be quickly accessible to the activity area, be easily identifiable, and carry a device (e.g. whistle) to raise an alarm using agreed-on signals. Current recovery/emergency competence may be held by any qualified adult as part of a broader qualification (e.g. swimming teacher or lifeguard qualifications).

If the minimum standard for supervision cannot be met, modify the activity (or elements of it) and/or identify 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 in the water at any one time).

See 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 are responsible for encouraging and enabling school-based activity supervisors to raise their qualifications to improve safety standards. Support for decision-making is provided by industry standards (e.g. RLSQ’s guidelines for inland waterways safety).

*See FAQs for further support.

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

At least 1 adult supervisor is required to have current knowledge, judgement, technique and physical ability to carry out safe water rescues and enact an emergency procedure. Recovery/emergency ability includes a current qualification or skillset (e.g. SISSS00134—inland open water lifeguard, SIS30122—Certificate III in Sport, Aquatics and Recreation) with the following units of competency (or similar).

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

Water safety and swimming education lessons—swimming teacher qualification

Supervisors, including registered teachers, engaged to provide water safety and swimming education lessons are to have, or be enrolled in and working towards, a swimming teacher qualification that demonstrates the following units of competency:

Contact registered training organisations (e.g. RLSSQ, AUSTSWIM, SWIM Coaches and Teachers Australia) for enrolment assistance.

Additional competencies are required:

Any other curriculum activity conducted in locations other than pools—aquatic supervision qualification

Supervisors, including registered teachers, engaged to conduct any other curriculum activities in locations other than pools may hold either:

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.

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.

A working emergency signal (e.g. whistle, air horn) must be available.

In open water, a pontoon, boat or float must be in close proximity to students.

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

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.

Identify appropriate swimming continence aids for students unable to manage their bodily functions

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, sun, humidity, wind

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.

Continuously monitor conditions for emerging rips, strong currents, turbulence and under tows. Cease activities when environmental warnings have been issued (e.g. local government or lifeguard warning)

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

Check with the local authority for the presence of known water contaminants (e.g. effluent) or other marine hazards 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 to ensure safe participation and that safety rules and procedures can be followed. Undertake a reconnaissance of new or infrequently used venues to ascertain suitability.

Clearly define the swimming area of an appropriate depth considering student age and ability. Depending on the location, rope floats or anchored buoys linked with ropes should be used to define the swimming boundary

Entry/exit points

Use the designated swimming areas when conducting the activity on patrolled beaches.

Establish appropriate entry and exit points at the water's edge

Instructional aids

If used, check personal flotation devices (e.g. lifejackets) and/or instructional aids (e.g. pool noodles) are fit for purpose, appropriate to students’ size and weight (e.g. conforming to Australian Standards AS 4758). Check for damage before use.

Do not use aquatic toys as instructional aids. Adhere to the warning labels/packaging and follow instructions for assembly and use.

Prevent participants from swimming under pontoons, boats and platforms

Manual handling
Lifting equipment, manipulating/moving students

Use correct manual handling processes when lifting, lowering, pushing, pulling or carrying

Vessels

If present, continually assess threat of vessels

Student considerations Control measures

Deep water
Risk of drowning, submersion

Allocate safe swimming areas (e.g. shallow water, near water's edge) for non-confident or reluctant swimmers.

Consult the water safety and swimming education program for guidance at each year/band level to:

  • provide learning experiences appropriate to swimming confidence, age and competence
  • ensure depth of water is appropriate to swimming competence and age.

Closely monitor students in deep water. Only allow competent swimmers to swim underwater. Restrict underwater swimming to short-duration activities under close supervision. Note: The water safety and swimming education program begins using breaststroke approach to swim down and touch bottom in the year 3 and 4 band.

Restrict access if turbulence may be expected (e.g. where a waterfall empties into deep water)

Entanglement
Underwater structures, weed, debris

Assess the location for entanglement hazards before each session.

Modify the activity or the location to avoid hazards

Hyperventilation

Encourage participants to take a full/deep breath before submerging and ensure exhalation whilst underwater.

Closely monitor students for involuntary multiple, shallow breaths.

Do not allow competitive breath-holding or 'no-breath' underwater games. Consult the FAQs for further information

Injury

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

Physical exertion
Exhaustion and fatigue

Consider personal flotation devices (PFD) or other buoyancy aids to avoid exertion.

Conduct warm-up/cool-down activities.

Continually monitor participants for signs of fatigue and exhaustion.

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

Student issues
Student numbers, special needs, high risk behaviours, medical conditions, separation from the group

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

Ensure each student under 5 years of age and non-swimmers remain within arm’s reach of an adult supervisor at all times. Closely monitor students with health support needs.

Implement procedures (e.g. buddy system, roll marking mechanisms) to account for all participants.

Limit the number of students in the water when close supervision is required.

Keep non-participants away from the water and do not cause a distraction.

Monitor shared facilities (e.g. change rooms, public access areas)

Swimming attire
Visibility, fabrics

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

Students wear fit-for-purpose swimming attire that is highly visible in water and does not cause a hazard (i.e. not too loose or heavy).

Each student must provide their own towel.

Students wear swimming caps or wear hair back if hair poses a hazard—consider type material as a drowning/suffocation risk.

Do not allow students to misuse swimming caps or equipment (e.g. do not pull swimming caps over faces, do not use rescue ropes for any purpose other than rescue or simulation).

Remove accessories (e.g. jewellery, lanyards) before participating

Water entry

Do not allow diving activities unless under supervision of a qualified coach (e.g. development coach accreditation with Surf Life Saving Qld) or other qualified person complying with AUSTSWIM diving position statement July 2024 (PDF, 1MB)

Visibility

Strongly encourage students to have high-visibility swimming attire.

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 24 September 2025