Chapter 2Review of annual reports

2.1Standing order 25(20)(b) allows the committee to consider selected annual reports in further detail. This chapter examines the following reports:

Agriculture, Fisheries and Forestry portfolio:

Department of Agriculture, Fisheries and Forestry

Grains Research and Development Corporation

Infrastructure, Transport, Regional Development, Communications, Sport and the Arts portfolio (excluding Communications, Sport and the Arts):

Department of Infrastructure, Transport, Regional Development, Communications, Sport and the Arts

Civil Aviation Safety Authority

Department of Agriculture, Fisheries and Forestry

2.2The Department of Agriculture, Fisheries and Forestry (DAFF) presented its 2024‍–‍25 annual report to the Senate on 24 October 2025.

Secretary's review

2.3Ms Justine Saunders APM, the Acting Secretary of DAFF at the time the report was tabled, reviewed DAFF's key initiatives, successes, and challenges for the reporting period. These included:

launching DAFF's Statement of Strategic Intent to outline the department's 'core purpose and strategic objectives';

attending the seventh Sanitary and Phytosanitary High-Level Dialogue in Shanghai;

extending market access for Australian red meat, dairy, and seafood industries;

supporting drought-affected communities with assistance packages, financial counselling, and concessional loans;

releasing the Australian Government Drought Plan and National Biosecurity Strategy Action Plan;

responding to and eradicating four outbreaks of high pathogenicity avian influenza (HPAI) H7 and leading the Australian Government HPAI Preparedness Taskforce in conjunction with health, environment, and emergency management portfolios;

detecting over 500 live exotic plant pests at or near the Australian border;

the implementation of a new framework to 'build capability and strengthen policy, program and service delivery'; and

co-leading Australia's first National Statement on Animal Welfare.[1]

Purpose, objectives, and outcomes

2.4DAFF's 2024–25 corporate plan outlines its purpose as '[w]orking together to safeguard and grow sustainable agriculture, fisheries and forestry for all Australians.'[2]

2.5To fulfil its purpose, DAFF has three strategic objectives:

(1)Sector growth – Support Australia's agricultural sector, including the food and fibre industries, to be increasingly prosperous and internationally competitive in an ever-changing world.

(2)Sector resilience and sustainability – Increase the contribution agriculture, fisheries and forestry make to a healthy, sustainable and low-emissions environment.

(3)National biosecurity – Strengthen our national biosecurity system to provide a risk-based approach and an appropriate level of protection to Australia's people, our environment and economy.[3]

2.6To administer its strategic objectives, DAFF has two outcomes as outlined in the 2024–25 Portfolio Budget Statements (PBS):

Outcome 1: More sustainable, productive, internationally competitive and profitable Australian agricultural, food and fibre industries through policies and initiatives that promote better resource management practices, innovation, self-reliance and improved access to international markets.

Outcome 2: Safeguard Australia's animal and plant health status to maintain overseas markets and protect the economy and environment from the impact of exotic pests and diseases, through risk assessment, inspection and certification, and the implementation of emergency response arrangements for Australian agricultural, food and fibre industries.[4]

2.7These outcomes are further broken down into programs:

Program 1.1: Agricultural Adaptation

Program 1.2: Sustainable Management – Natural Resources

Program 1.3: Forestry Industry

Program 1.4: Fishing Industry

Program 1.5: Horticulture Industry

Program 1.6: Wool Industry

Program 1.7: Grains Industry

Program 1.8: Dairy Industry

Program 1.9: Meat and Livestock Industry

Program 1.10: Agricultural Resources

Program 1.11: Drought Programs

Program 1.12: Rural Programs

Program 1.13: International Market Access

Program 2.1: Biosecurity and Export Services

Program 2.2: Plant and Animal Health.[5]

Key activities

2.8During the 2024–25 reporting period, DAFF consolidated its key activities from 21 (as presented in its 2024–25 corporate plan) to eight 'to more directly align to [its] purpose, strategic objectives and PBS outcomes.'[6]

2.9Consequently, the department's performance measures as outlined in its 2024‍–‍25 corporate plan have been realigned to correspond with its updated key activities.[7]

Strategic objective 1: Sector growth

2.10Table 2.1 outlines DAFF's key activities that support strategic objective 1. Of eight performance measures, six were achieved.

Source: DAFF, Annual report 2024–25, pp.10–32.

2.11The committee notes this is the third year that measure SG-03 has not been met (noted as IG‑03 in the 2022–23 and 2023–24 reporting periods).[8] However, the committee recognises that to achieve this performance measure, DAFF relies on an increase of farm businesses making new capital investments in comparison with the previous financial year (based on a five-year moving average).[9]

2.12DAFF notes that the 2024–25 five-year growth figure of 53 per cent is unchanged compared with the figure from the 2023–24 financial year. Further, the department indicates that the percentage of total farm business making capital investments fell from 54 per cent to 46 per cent, reflecting 'declines in broadacre farm incomes in 2023–24 due to lower commodity prices … and drier seasonal conditions in many regions.'[10]

2.13The department also failed to achieve performance measure SG-08 in relation to investment in the forestry sector. A total of $21.29 million in grant payments were made through the Accelerate Adoption of Wood Processing Innovation Program (AAWPIP), falling short of the $30.22 million target.[11]

2.14However, the department notes that, while the 2024–25 target was not met, AAWPIP delivery 'remains on track'. DAFF attributes the downturn in grant payments to '[s]lower than expected project implementation by grantees' leading to some payment timeframes being adjusted, while also recognising that stagnation in the housing and construction markets has caused some grantees to 'delay some elements of their projects or defer receipt of grant funding'.[12]

2.15The committee is pleased that the department has committed to an evaluation of the AAWPIP once the grant program is completed.[13]

Strategic objective 2: Sector resilience and sustainability

2.16Table 2.2 outlines DAFF's key activities that support strategic objective 2. Of four performance measures, one was achieved and three were partially achieved.

Source: DAFF, Annual report 2024–25, pp.32–44.

2.17Performance measure RS-01 had four targets, of which targets (1) and (4) below were achieved.

(1)targeted consultation to inform the Agriculture and Land Sector Plan (ALSP);

(2)deliver the Agriculture and Land Sector Plan to government;

(3)deliver 100 per cent of 2024–25 funding according to agreed milestones for Budget measures related to emissions reduction activities; and

(4)undertake two engagement activities with another country.[14]

2.18DAFF acknowledges that delivering the ALSP 'progressed in line with government expectations', though it had not been released at the conclusion of the reporting period.[15] The committee understands that the ALSP was released in September 2025,[16] and will monitor whether the department achieves future performance targets within the specified reporting period.

2.19The committee notes that DAFF did not meet performance measure RS‑02 (‍regarding funding for the Climate-Smart Agriculture Program) in either the 2023–24 or 2024–25 reporting periods. However, the committee appreciates that DAFF has acknowledged that results for this measure 'are expected to improve' due to over 90 per cent of investments having finalised funding agreements.[17]

2.20During the 2024–25 reporting period, DAFF did not meet performance measure RS-03 (concerning Future Drought Fund (FDF) resourcing), attributing this underspend to '[d]elays in establishing programs and negotiating contracts'.[18]

2.21DAFF outlined five key FDF investment themes:

partnering for local solutions;

partnering for First Nations initiatives;

building knowledge, skills, and capability;

innovating for transformation; and

measuring progress and knowledge sharing.[19]

2.22The committee supports these objectives and encourages DAFF to continue investment through the FDF in future reporting periods to ensure performance targets are achieved.

Strategic objective 3: National biosecurity

2.23Table 2.3 outlines DAFF's key activities that support strategic objective 3. Of 12 performance measures, seven were achieved and four were partially achieved.

Source: DAFF, Annual report 2024–25, pp.44–81.

2.24DAFF partially achieved performance measure BI-03, seeing a 0.5 per cent increase in the number of countries with pre-border assurance agreements (taking the total to 17 per cent). However, the target of 22.5 per cent was not met as an incorrect baseline was established.[20] The committee is satisfied that the department has revised this baseline for the 2025–26 reporting period.[21].

2.25Performance measure BI-06 concerns the interception of 'illegally imported meat and animal products that may carry diseases', measured against statistics from before November 2018, at which point risk‑mitigation activities were increased.[22]

2.26Figure 2.1 outlines interception statistics from the pre-risk mitigation period (average from 2015–16 to 2017–18) and the post-risk mitigation period (average from 2021–22 to 2024–25). It covers two pathways: non-letter class mail articles and incoming travellers.

Source: DAFF, Annual report 2024–25, p. 63.

2.27The department exceeded the target (a 50 per cent increase in interceptions) for incoming travellers with a 71 per cent increase in the percentage of screened travellers detected with animal products.

2.28The percentage detection for non-letter class mail was relatively stable with interceptions falling from 0.036 per cent to 0.033 per cent.[23] DAFF notes that the average proportion of non-letter class mail screened has risen from 21 per cent during the pre-mitigation period to 78 per cent during the post-measure period. DAFF stated that the 'stable detection rate suggests that existing controls are maintaining consistent performance and highlights the ongoing need for intervention and intelligence-led targeting in the pathway'.[24]

2.29The department partially achieved performance measure BI-09—to lower rates of non-compliance with biosecurity controls for international travellers—seeing a slight increase from 3.18 per cent in 2023–24 to 3.55 per cent in 2024–25. However, the department noted that the non-compliance rate over recent years has stayed between three and four per cent, hence the result was 'not unexpected.'[25]

2.30Performance measure BI-10 was not achieved during the reporting period, with a 3.13 per cent increase in failed regulatory audits. The department attributes this increase to 'a strategic shift in audit methodology' with greater reliance on unannounced audits, which:

… by design, provide a more accurate picture of day-to-day compliance but often result in higher detection of non-conformities due to the absence of prior preparation by audited entities.[26]

2.31The committee supports the department's 'proactive approach' to 'balanc[e] announced and unannounced audits' that will continue to allow the department to ensure Australia's biosecurity safety.[27]

2.32During the reporting period, performance measure BI-11 (regarding service standards) was partially achieved, with six of 11 service standard measures met, and seven of 11 seeing an increase in performance from the previous reporting period.[28]

2.33DAFF engaged 480 new biosecurity officers (a full-time equivalent of 198) during the reporting period, with a 'significant portion' working in operational roles.[29] The committee will monitor whether this increase in staffing levels leads to an improvement in service standards measures.

Staffing and financial information

2.34As at 30 June 2025, DAFF had a total of 6786 employees, of which 6537 were ongoing and 249 were non-ongoing.[30]

2.35DAFF reported a total comprehensive loss of $52.841 million during the 2024–‍25 reporting period, against a budgeted loss of $84.897 million.[31] The department's net asset position increased by $72.7 million during the reporting period, as it 'continued to refresh and replace essential property and ICT assets to reduce the service delivery risk.'[32]

2.36Other key financial information included:

total departmental expenditure of $1.468 billion;

total own-source income of $680.565 million; and

a total of $759.46 million received in government revenue.[33]

2.37On behalf of the government, DAFF administered 15 programs during the reporting period, with expenses totalling $1.822 billion for programs under Outcome 1 and $.1.168 billion for programs under Outcome 2.[34]

Committee comment

2.38Overall, the committee considers that DAFF has met the reporting requirements outlined in the PGPA Act and PGPA Rule, and as such views its 2024–25 annual report as 'apparently satisfactory'.

2.39However, for ease of reference and accessibility, the committee encourages DAFF to ensure page references—particularly in its list of legislative requirements (AppendixI)—are shown as page ranges where applicable, rather than a singular page reference.

2.40The committee also notes that some hyperlinked text was not active and asks the department to ensure that all links are active, or, alternatively, to include direct URLs for reference.

Grains Research and Development Corporation

2.41The Grains Research and Development Corporation (GRDC) tabled its 2024–25 annual report in the Senate on 27 October 2025.

Chair's report

2.42Mrs Sharon Starick, the Chair of GRDC, summarised GRDC's involvement in research, development, and extension (RD&E):

As an organisation, GRDC invests in this RD&E on behalf of all Australian grain growers, and we take our role and responsibility seriously.

We are firmly committed to ensuring RD&E investments deliver a return on investment to growers. Recent independent analysis shows that for every dollar GRDC invests, growers receive a $6–$9 return, with an average net present value of benefit per project of between $57–67 million. This impact includes increased or stable productivity, improved crop varieties, better disease and pest management, and more efficient farming systems.

…

GRDC's strategic investment direction is shaped by a commitment to long-term planning, robust financial stewardship and deep engagement with industry stakeholders. Our RD&E Plan 2023–28 exemplifies this approach, with more than $525 million in forward commitments already secured against a total investment target of $1.2 billion. These investments are not only substantial in scale but also carefully aligned with grower priorities, ensuring that our investments deliver practical, on-farm impact.[35]

Managing Director's report

2.43Mr Nigel Hart, GRDC's Managing Director, provided a brief overview of GRDC's key activities and successes during the reporting period, which included:

investing $242.5 million in over 800 RD&E projects, of which 37 per cent were new projects;

investing $2.4 million in early-stage start-ups through GrainInnovate;

supporting its 'open door policy' through the National Grower Network (NGN), facilitating engagement with growers, researchers, advisers, and stakeholders at 64 NGN forums with over 1260 participants; and

receiving encouraging results from the 2025 Grower Survey, with:

85 per cent of participants 'rating GRDC's investment role highly';

84 per cent of participants 'reporting direct benefit from RD&E'; and

72 per cent of participants crediting GRDC for contributing to that benefit.[36]

Purpose and outcome

2.44GRDC outlines its purpose as being '[t]o invest in research, development and extension to create enduring profitability for Australian grain growers.'[37]

2.45As specified in the 2024–25 PBS, GRDC has one outcome:

New information and products that enhance the productivity, competitiveness and environmental sustainability of Australian grain growers and benefit the industry and wider community, through planning, managing and implementing investments in grains research and development.[38]

Performance measures

2.46GRDC has five targets with nine performance measures, of which seven were achieved and one was partially achieved in 2024–25. Table 2.4 outlines these performance measures.

Source: GRDC, Annual report 2024–25, pp. 56–60.

2.47GRDC did not achieve its performance measure to equal or increase climate‑adjusted total factor productivity (TFP), with the 2023–24[39] seven-year rolling average TFP equalling 2.0 per cent, less than the long-term trend of 3.0 per cent.[40]

2.48GRDC notes that the grains industry has seen 'exceptional productivity growth' of approximately 2.3 per cent per annum on average since 2004, and around two per cent per annum on average over the past 10 years. This contrasts with broadacre agriculture growth of around 0.6 per cent over the same period.[41]

2.49The committee is encouraged by GRDC's commitment to review calculation methods to ensure that they are appropriate given the GRDC's view that 'productivity is best viewed as a long-term measure.'[42]

2.50To calculate market diversity for major grain crops, GRDC uses the Herfindahl‑Hirschman Index (HHI) under which lower values indicate greater market diversity.[43] Table 2.5 outlines the seven-year rolling HHI average against the long-term HHI baseline for the crops included in GRDC's target measure.

Source: GRDC, Annual report 2024–25, p. 60.

2.51GRDC reflected on the HHI results, having achieved targets for barley, sorghum, and canola, but not for wheat and lentils:

In 2023–24 HHI was lower for barley, canola and sorghum than their 10-year base line averages, indicating an improvement in market diversity as the products sold into more markets.

Market diversity for wheat was stable, deviating by less than 0.7 points from the 10-year average. Market for lentils showed a slight increase in concentration compared to the 10-year average, as Australian growers responded to high demand pulses in India.[44]

Staffing and financial information

2.52During the 2024–25 reporting period, GRDC had a total of 130 employees, all of whom were ongoing.[45]

2.53GRDC reported a net comprehensive surplus of $129.934 million during the 2024–‍25 financial year, against a budgeted deficit of $16.347 million.[46]

2.54This gain is attributed to 'higher than expected grain production' leading to further revenue from industry levies and 'a more conservative [budget forecasting] methodology based on long-term revenue averages' which has been updated for the 2025–26 financial year.[47]

2.55Further, GRDC note that, alongside the aforementioned factors, 'a $26.1 million increase in government contributions due to a higher 3-year average Gross Value of Production achieved in 2024–25' aided in achieving its surplus.[48]

2.56Other key financial information included:

total agency expenditure of $293.1 million;

total own-source income of $285.795 million; and

a total of $134.331 million received in government revenue.[49]

Committee comment

2.57Overall, the committee considers that GRDC has met the reporting requirements outlined in the PGPA Act and PGPA Rule, and as such views its 2024–25 annual report as 'apparently satisfactory'.

2.58Nevertheless, the committee asks GRDC to ensure that all legislative requirements are listed in its compliance index, and to include page references to all requirements—even when these are located in appendices—for ease of reference and accessibility.

2.59The committee also reminds GRDC that Senator the Hon Murray Watt was—as Minister for Agriculture, Fisheries and Forestry—its responsible minister until 29July 2024,[50] and asks GRDC to ensure that any future ministerial changes are noted in its annual reports.

Department of Infrastructure, Transport, Regional Development, Communications, Sport and the Arts

2.60The Department of Infrastructure, Transport, Regional Development, Communications, Sport and the Arts (DITRDCSA) tabled its 2024–25 annual report in the Senate on 28 October 2025.

2.61In this report, the committee will comment only on the infrastructure, transport, regional development, and corporate functions of DITRDCSA. The Senate Environment and Communications Legislation Committee will comment on the communications, sport, and arts functions of the department in its Report on annual reports (No.1 of 2026).

Secretary's review

2.62DITRDCSA's secretary, Mr Jim Betts, provided an overview of the department's key activities and successes during the reporting period, which included:

launching the Our Stories on Country Agreement to work towards Closing the Gap;

the completion of 76 major road and rail projects across all states and territories;

the completion of construction on the terminal, airside, and landside packages of the Western Sydney International Airport;

collaboration with the Queensland Government regarding venue infrastructure for the Brisbane 2032 Olympic and Paralympic Games;

the implementation of the New Vehicle Efficiency Standard, which is estimates to lead to a reduction in greenhouse gas emissions of 321 million tonnes and provide $95 million in fuel savings by 2050;

leading the government's response to the voluntary administration process for Regional Express Holdings (Rex), including delivering a $110 million loan 'to support … the Rex network and regional flight bookings';

releasing the government's Aviation White Paper;

providing $184 million in funding under the Tasmanian Freight Equalisation Scheme (TFES) and $55 million in rebates under the Bass Strait Passenger Vehicle Equalisation Scheme (BSPVES); and

the announcement of 'a new bespoke local governance model for Norfolk Island', based on recommendations from the Joint Standing Committee on the National Capital and External Territories and the Norfolk Island Governance Committee.[51]

Purpose and outcomes

2.63DITRDCSA defines its purpose as to 'work with our partners to enable connected, productive, safe, sustainable and culturally vibrant communities in our cities, regions and territories to improve the lives of Australians.'[52]

2.64As outlined in the 2024–25 PBS, DITRDCSA has six outcomes, of which four are applicable for the infrastructure, transport, and regional development functions of the department:

Outcome 1: Improved infrastructure across Australia through investment in and coordination of transport and other infrastructure.

Outcome 2: An efficient, sustainable, competitive, safe and secure transport system for all transport users through regulation, financial assistance and safety investigations.

Outcome 3: Strengthening the sustainability, capacity and diversity of Australia's cities and regions including northern Australia, including through facilitating local partnerships between all levels of government and local communities; through investment in infrastructure and measures that stimulate economic growth; and providing grants and financial assistance.

Outcome 4: Good governance and service delivery in the Australian territories including through the maintenance and improvement of the laws and services for non-self-governing territories, and the overarching legislative framework for self-governing territories.[53]

2.65These outcomes are further broken down into programs:

Program 1.1: Infrastructure Investment

Program 2.1: Surface Transport

Program 2.2: Road Safety

Program 2.3: Air Transport

Program 3.1: Regional Development

Program 3.2: Local Government

Program 3.3: Cities

Program 3.4: Growing a Stronger Northern Australia Economy

Program 4.1: Service to Territories.[54]

Performance measures

2.66 To support its outcomes in the infrastructure, transport, and regional development functions, DITRDCSA had 20 key activities with 25 applicable performance measures at the conclusion of the reporting period.[55] Of these, 21 performance measures were met.[56]

2.67DITRDCSA notes that, compared with its 2024–25 corporate plan, some performance measures were altered:

The majority of these changes were reflected in the 2025–26 PBS before the conclusion of the 2024–25 financial year in compliance with the "clear read" principle…[57]

Program 1.1: Infrastructure Investment

2.68Table 2.6 outlines DITRDCSA's key activities that support Program 1.1. Of three performance measures, two were met and one was substantially met.

Source: DITRDCSA, Annual report 2024–25, pp. 57–63.

Program 2.1: Surface Transport

2.69Table 2.7 outlines DITRDCSA's key activities that support Program 2.1. All three performance measures under this program were met.

Source: DITRDCSA, Annual report 2024–25, pp. 67–77.

Program 2.2: Road Safety

2.70Table 2.8 outlines DITRDCSA's key activities that support Program 2.2. Both performance measures under this program were met.

Source: DITRDCSA, Annual report 2024–25, pp. 78–80.

Program 2.3: Air Transport

2.71Table 2.9 outlines DITRDCSA's key activities that support Program 2.3. All six performance measures under this program were met.

Source: DITRDCSA, Annual report 2024–25, pp. 81–91.

Program 3.1: Regional Development

2.72Table 2.10 outlines DITRDCSA's key activities that support Program 3.1. Of three performance measures, two were met and one was substantially met.

Source: DITRDCSA, Annual report 2024–25, 95–99.

Program 3.2: Local Government

2.73Table 2.11 outlines DITRDCSA's key activities that support Program 3.2. The sole performance measure under this program was met.

Source: DITRDCSA, Annual report 2024–25, pp. 100–101.

Program 3.3: Cities

2.74Table 2.12 outlines DITRDCSA's key activities that support Program 3.3. Of four applicable performance measures, three were met and one was substantially met.

Source: DITRDCSA, Annual report 2024–25, pp. 102–108.

2.75As part of the Administrative Arrangements Order dated 13 May 2025, responsibility for cities and urban policy transferred from DITRDCSA to the Treasury portfolio.[58] As such, performance measure 23 was not applicable for DITRDCSA at the end of the reporting period—results for this performance measure can instead be found in the Department of the Treasury's Annual report 2024–25.[59]

Program 3.4: Growing a Stronger Northern Australia Economy

2.76Table 2.13 outlines DITRDCSA's key activities that support Program 3.4. The sole performance measure under this program was met.

Source: DITRDCSA, Annual report 2024–25, pp. 109–110.

Program 4.1: Services to Territories

2.77Table 2.14 outlines DITRDCSA's key activities that support Program 4.1. Of two performance measures, one was met and one was substantially met.

Source: DITRDCSA, Annual report 2024–25, pp. 115–117.

Performance measure results

2.78Of the four performance measures targets that DITRDCSA did not meet (performance measures 3, 17, 19, and 25), all related to providing 'high quality, timely and evidence based' policy advice. To assess performance, a selection of pieces of policy advice prepared under each performance measure were assessed by an internal departmental panel.[60]

2.79Table 2.15 outlines the percentage of policy advice pieces that were deemed to have met the performance criteria.

Source: DITRDCSA, Annual report 2024–25, pp. 62, 98, 102, and 115.

2.80DITRDCSA reflected on the results for all four targets, noting that:

While some briefs did not meet the assessment threshold, these results should be considered alongside the inherent nuances of providing policy advice, and the metrics used in the Policy Advice Assessment Methodology. All briefs were cleared by the department and actioned by the minister's office, fulfilling their intended purpose within the context and timing of delivery.[61]

Staffing and financial information

2.81During the 2024–25 reporting period, DITRDCSA had a total of 2356 employees, of which 2283 were ongoing and 73 were non-ongoing.[62]

2.82DITRDCSA reported a total comprehensive income of $13.939 million during the 2024–25 reporting period, against a budgeted loss of $9.008 million.[63]

2.83The department noted that its better-than-forecast net income:

… was attributable to a combination of factors, with the department maintaining a prudent approach to the prioritisation and allocation of resources, including strategies to restrain expenditure and staffing growth. Lower than anticipated expenditure on contracted services and administrative costs associated with grant payments, and other comprehensive income arising from asset revaluation movements contributed materially to the surplus.[64]

2.84Other key financial information included:

total departmental expenditure of $571.978 million;

total own-source income of $14.678 million;

a total of $567.311 million received in government revenue.[65]

2.85On behalf of the government, DITRDCSA administered 11 programs during the 2024–25 reporting period, nine of which fell under the remit of the committee.[66] Total direct expenses for all programs equalled $2.047 billion, of which $1.347 billion was applicable for programs of which the committee has oversight.[67] Table 2.15 outlines funding by infrastructure, transport, and regional development outcome.

Source: DITRDCSA, Annual report 2024–25, pp. 256–258.

2.86The department's total administered annual appropriations reached $15.382 billion; however, this total includes remaining available appropriations from the 2023–24 financial year, funding for other non-operating services, payments made to state, territory, and local governments, and funding for outcomes that fall under the remit of the Senate Environment and Communications Legislation Committee.[68]

Committee comment

2.87Overall, the committee considers that DITRDCSA has met the reporting requirements outlined in the PGPA Act and PGPA Rule, and as such views its 2024–25 annual report as 'apparently satisfactory'.

2.88However, for ease of reference and accessibility, the committee encourages DITRDCSA to ensure page references—particularly in its list of legislative requirements—are shown as page ranges where applicable, rather than a singular page reference.

Civil Aviation Safety Authority

2.89The Civil Aviation Safety Authority (CASA) 2024–25 annual report was tabled in the House of Representatives on 6 November 2025 and in the Senate on 24November 2025, after the due date of 31 October 2025.

Chair's message

2.90The Chair of CASA's Board, Air Chief Marshal (Ret'd) Mark Binskin AC, summarised the Board's priorities during the year:

… the Board has been particularly focused over the past year on CASA's ability to be responsive to the aviation industry. Clearly, our first priority is to make sure CASA is responding successfully and professionally to changing aviation safety risks, using data and risk analysis to drive improvements where required. At the same time, the Board has been looking at how CASA listens to the aviation community and demonstrates an understanding of the feedback and issues raised during the course of regulatory business.[69]

Chief Executive Officer's review

2.91Ms Pip Spence PSM, CASA's Chief Executive Officer and Director of Aviation Safety, provided an overview of the 2024–25 reporting period, highlighting CASA's aims, initiatives, and success, which included:

marking CASA's 30th anniversary;

continuing the implementation of flight operations regulations;

the rollout of the National Oversight Plan;

strategic workforce planning and quality assurance; and

expanding CASA's online service delivery, with the myCASA portal now being home to 78 separate services.[70]

2.92Ms Spence also reflected on CASA's role in the aviation sector, noting that:

… CASA strives to find a balance – to be a fair and independent regulator, which is consultative and collaborative, while giving safety primacy at all times. This means we can't make everybody happy with every decision we take, but we do put a lot of time and effort into considering multiple viewpoints and options before taking actions. We appreciate that CASA is only one part of the aviation safety system and the organisations and people who make up the rest of the system all need to understand and respect the outcomes we are seeking.[71]

Purpose and outcome

2.93CASA outlines its purpose as being 'to conduct the safety regulation of civil air operations in Australian territory and the operation of Australian aircraft outside Australian territory.'[72]

2.94As specified in the 2024–25 PBS, CASA has one outcome:

Maximise aviation safety through a regulatory regime, detailed technical material on safety standards, comprehensive aviation industry oversight, risk analysis, industry consultation, education and training.[73]

Performance measures

2.95CASA has 11 performance measures with 21 targets, which are outlined in Table2.16. 16 of 21 targets were achieved during the 2024–25 reporting period.

Source: CASA, Annual report 2024–25, pp. 25–26.

2.96During the 2024–25 reporting period, CASA did not achieve its performance measure regarding the number of aviation fatalities. One fatal commercial air transport (CAT) accident occurred (exceeding the target of zero fatalities). CASA notes that the 'accident involved a non-scheduled CAT seaplane colliding with water at Rottnest Island, Western Australia, resulting in 3 fatalities.' The committee notes that CASA's 'longer-term assessment of CAT fatal accidents did not identify any notable trends or common failures.'[74]

2.97CASA noted that six fatal accidents were recorded in the commercial aviation sector, higher than the 10-year average of 5.5 fatal accidents per year. During the reporting period:

four fatal accidents occurred during aerial work resulting in five fatalities; and

two fatal accidents occurred during instructional flying, resulting in four fatalities.[75]

2.98The committee is glad that CASA has engaged with the agricultural sector in response to an increase in fatalities and other serious incidents in aerial agriculture. This engagement included conducting an aerial agriculture sector safety risk profile in November 2024.[76]

2.99CASA noted that, in the non-commercial aviation sector, there were 11 fatal accidents leading to 13 fatalities during the 2024–25 reporting period, both statistics being lower than the respective 10-year averages. There were no fatal accidents involving uncrewed aviation during the reporting period.[77]

2.100Table 2.18 outlines the total number of fatal accidents and fatalities by aviation industry sector during the reporting period.

Source: CASA, Annual report 2024–25, p. 29.

2.101CASA highlighted that the number of fatal accidents in 2024–25 is lower than the 10-year average of 19.7 accidents per annum, while the total number of fatalities is also lower than the 10-year average of 29.6 per annum.[79]

2.102CASA did not achieve its performance measure regarding the number of serious incidents in the aviation sector, indicating that:

The rate of serious incidents in CAT (35.6 serious incidents per million CAT departures) was above the 10-year average (31.6 serious incidents per million CAT departures) and the number of serious incidents in commercial aviation (99) was above the 10-year average (71.9). The number of serious incidents for non-commercial aviation (74) was comparable to the 10-year average (71.3) while the number for uncrewed aviation (0) was below the 10-year average (0.8).[80]

2.103During the reporting period, CASA did not meet its target to implement regulations in line with the Forward Regulatory Program (FRP).[81] CASA notes that it 'continued to make strong progress on the implementation' of the FRP. However, it was unable to fully achieve the planned program 'due to some internal and external constraints.'[82]

2.104The committee extends its sympathy and condolences to the families of all those impacted by aviation accidents and fatalities.

Staffing and financial information

2.105During the 2024–25 reporting period, CASA had a total of 863 employees, of whom 845 were ongoing and 18 were non-ongoing.[83]

2.106CASA reported an operating deficit of $25.546 million during the 2024–25 financial year, against a budgeted deficit of $29.564 million. The improved result is primarily attributed 'to the increase in aviation fuel excise revenue.'[84]

2.107Other key financial information included:

total agency expenditure of $221.762 million;

total own-source income of $21.635 million; and

a total of $174.246 million received in government revenue.[85]

Committee comment

2.108Overall, the committee considers that CASA has met the reporting requirements outlined in the PGPA Act and PGPA Rule, and as such views its 2024–25 annual report as 'apparently satisfactory'.

2.109However, for ease of reference and accessibility, the committee asks CASA to ensure that its list of legislative requirements includes direct page references (including page ranges where applicable) to the relevant section of its annual report.

General comments on other annual reports

2.110Though not considering all annual reports in detail, the committee has identified certain areas of improvement for some entities.

Compliance indexes

2.111Annual reports are one of the principal accountability mechanisms provided for by the PGPA Act, and the committee considers it vital that annual reports are accessible and comprehensible for all readers. As such, a compliance index (or list of legislative requirements) is an important tool for accessibility.

2.112The PGPA Rule specifies a particular format for bodies to use when creating a compliance index.[86] The committee encourages all bodies to avoid unnecessary deviation from this format, which it considers best practice.

2.113A compliance index should direct the reader to a specific page—or a range of pages where the specified information spans multiple pages—within an annual report in order to clearly indicate where a certain mandatory reporting requirement has been satisfied in accordance with the PGPA Rule.

2.114However, the committee identified some compliance indexes that instead contained references to whole sections, subsections, or chapters within a report rather than providing a specific page reference. The committee notes that the below agencies either referenced whole sections, chapters, or appendices for all or some of the mandatory performance requirements:

Airservices Australia

Australian Fisheries Management Authority

Civil Aviation Safety Authority

Infrastructure Australia.[87]

2.115Further, the committee notes that the High Speed Rail Authority did not provide references to any PGPA Rule requirements (either to specific pages or whole sections or chapters), despite including a column for this information in its compliance index.[88]

2.116The committee also identified some compliance indexes that included incorrect page references. These included:

Australian Maritime Safety Authority—PGPA Rule reference 17BE(m) is available on page 52, rather than page 50 as referenced;[89]

Australian Transport Safety Bureau—PGPA Rule reference 17AF(1)(a) is available on pages 61–62, rather than pages 26–37 as referenced;[90]

Cotton Research and Development Corporation—PGPA Rule reference 17BE(taa)(c) is available on pages 50–53, rather than page 54 as referenced;[91] and

Northern Australia Infrastructure Facility—PGPA Rule reference 17BE(d) is available on page 40, rather than page 38 as referenced.[92]

2.117The committee encourages all entities to provide specific and accurate page references for each requirement to enhance readability and ensure overall compliance with the PGPA Rule.

Minister for Agriculture, Fisheries and Forestry

2.118The committee reminds agencies in the Agriculture, Fisheries and Forestry portfolio that Senator the Hon Murray Watt was their responsible minister—as Minister for Agriculture, Fisheries and Forestry—until 29 July 2024.[93]

2.119The Cotton Research and Development Corporation, Fisheries Research and Development Corporation, Grains Research and Development Corporation, and Wine Australia failed to mention Minister Watt was their responsible minister until 29 July 2024 in their annual report.[94] The committee trusts than any future ministerial changes will be noted in entities' annual reports.

2.120Lastly, the committee reminds the Cotton Research and Development Corporation that the Hon Julie Collins MP was sworn in as Minister for Agriculture, Fisheries and Forestry on 29 July 2024,[95] rather than 13 May 2025 as recorded in its annual report.[96]

'Apparently satisfactory'

2.121As noted in Chapter 1, the committee has examined all reports in the Agriculture, Fisheries and Forestry portfolio and Infrastructure, Transport, Regional Development, Communications, Sport and the Arts portfolio (excluded Communications, Sport and the Arts), as 'apparently satisfactory', notwithstanding the above comments.

2.122The committee anticipates that the matters identified in this report will be rectified in future annual reports.

Senator Glenn Sterle

Chair

Footnotes

[1]Department of Agriculture, Fisheries and Forestry (DAFF), Annual report 2024–25, pp. ix–xi.

[2]DAFF, Corporate plan 2024–25, p. 5.

[3]DAFF, Annual report 2024–25, p. 6.

[4]Commonwealth of Australia, Agriculture, Fisheries and Forestry Portfolio Budget Statements 2024–25: Budget Related Paper No, 1.1, p. 4.

[5]DAFF, Annual report 2024–25, pp. 5–6.

[6]DAFF, Annual report 2024–25, pp. 8–9.

[7]DAFF, Annual report 2025–25, pp. 13, 15, 18, 20, 23, 26, 30, 32, 35, 37, 40, 44, 48, 52, 54, 57, 60, 64, 66, 68, 71, 75, 78, and 81.

[8]DAFF, Annual report 2023–24, p. 19 and DAFF, Annual report 2022–23, p. 18.

[9]DAFF, Annual report 2024–25, p. 15.

[10]DAFF, Annual report 2024–25, pp. 15–16.

[11]DAFF, Annual report 2024–25, p. 18.

[12]DAFF, Annual report 2024–25, pp. 18–19.

[13]DAFF, Annual report 2024–25, p. 19.

[14]DAFF, Annual report 2024–25, p. 41.

[15]DAFF, Annual report 2024–25, 42.

[16]DAFF, Agriculture and Land Sector Plan, 18 September 2025 (accessed 24 December 2025).

[17]DAFF, Annual report 2024–25, pp. 33–34.

[18]DAFF, Annual report 2024–25, 35–36.

[19]DAFF, Annual report 2024–25, p. 36.

[20]DAFF, Annual report 2024–25, pp. 52–53.

[21]DAFF, Annual report 2024–25, p. 53.

[22]DAFF, Annual report 2024–25, pp. 61–62.

[23]DAFF, Annual report 2024–25, pp. 62–63.

[24]DAFF, Annual report 2024–25, p. 62.

[25]DAFF, Annual report 2024–25, p. 67.

[26]DAFF, Annual report 2024–25, p. 70.

[27]DAFF, Annual report 2024–25, p. 70.

[28]DAFF, Annual report 2024–25, pp. 73–74.

[29]DAFF, Annual report 2024–25, p. 73.

[30]DAFF, Annual report 2024–25, pp. 202–203.

[31]DAFF, Annual report 2024–25, p. 121.

[32]DAFF, Annual report 2024–25, p. 107.

[33]DAFF, Annual report 2024–25, p. 121.

[34]DAFF, Annual report 2024–25, pp. 194–201.

[35]Grains Research and Development Corporation (GRDC), Annual report 2024–25, pp. 7–8.

[36]GRDC, Annual report 2024–25, p. 9.

[37]GRDC, Annual report 2024–25, p. 4.

[38]Commonwealth of Australia, Agriculture, Fisheries and Forestry Portfolio Budget Statements 2024–25: Budget Related Paper No, 1.1, p. 191.

[39]GRDC has referenced data from the 2023–24 financial year where data from 2024–25 was not yet available at the time of publication of its annual report.

[40]GRDC, Annual report 2024–25, p. 56.

[41]GRDC, Annual report 2024–25, p. 56.

[42]GRDC, Annual report 2024–25, p. 56.

[43]GRDC, Annual report 2024–25, p. 60.

[44]GRDC, Annual report 2024–25, p. 60.

[45]GRDC, Annual report 2024–25, p. 177.

[46]GRDC, Annual report 2024–25, p. 143.

[47]GRDC, Annual report 2024–25, p. 149.

[48]GRDC, Annual report 2024–25, p. 149.

[49]GRDC, Annual report 2024–25, pp. 138–139 and 143.

[50]Department of Prime Minister and Cabinet, Ministry list as at 31 May 2023, 31 May 2023 (accessed 9January 2026).

[51]Department of Infrastructure, Transport, Regional Development, Communications, Sport and the Arts (DITRDCSA), Annual report 2024–25, pp. 6–13.

[52]DITRDCSA, Annual report 2024–25, p. 31.

[53]Commonwealth of Australia, Infrastructure, Transport, Regional Development, Communications and the Arts Portfolio Budget Statements 2024–25: Budget Related Paper No, 1.12, p. 11.

[54]DITRDCSA, Annual report 2024–25, pp. 38–39.

[55]DITRDCSA's corporate plan outlined 26 performance measures, however performance measure 23 was transferred to the Department of the Treasury following the Administrative Arrangements Order of 13 May 2025.

[56]DITRDCSA, Annual report 2024–25, pp. 50–53.

[57]DITRDCSA, Annual report 2024–25, p. 46.

[58]Department of Prime Minister and Cabinet, Administrative Arrangements Order – 13 May 2025, 13May 2025 (accessed 14 January 2026).

[59]Department of the Treasury, Annual report 2024–25, pp. 72–73.

[60]DITRDCSA, Annual report 2024–25, pp. 62, 98, 102, and 115.

[61]DITRDCSA, Annual report 2024–25, pp. 98, 102, and 115.

[62]DITRDCSA, Annual report 2024–25, pp. 278–279.

[63]DITRDCSA, Annual report 2024–25, p. 180.

[64]DITRDCSA, Annual report 2024–25, p. 19.

[65]DITRDCSA, Annual report 2024–25, p. 180.

[66]DITRDCSA, Annual report 2024–25, pp. 38–39.

[67]DITRDCSA, Annual report 2024–25, pp. 256–258.

[68]DITRDCSA, Annual report 2024–25, pp. 256–258.

[69]Civil Aviation Safety Authority (CASA), Annual report 2024–25, p. 12.

[70]CASA, Annual report 2024–25, pp. 14–15.

[71]CASA, Annual report 2024–25, p. 14.

[72]CASA, Annual report 2024–25, p. 23.

[73]Commonwealth of Australia, Infrastructure, Transport, Regional Development, Communications and the Arts Portfolio Budget Statements 2024–25: Budget Related Paper No, 1.12, p. 233.

[74]CASA, Annual report 2024–25, pp. 28–29.

[75]CASA, Annual report 2024–25, p. 29.

[76]CASA, Annual report 2024–25, p. 29.

[77]CASA, Annual report 2024–25, p. 29.

[78]CASA noted that '[o]ne fatal accident in October 2024 involved 2 aircraft from 2 separate sectors. This fatal accident is counted in both commercial aviation and non-commercial aviation for the purpose of sector reporting but only counted once for cumulative (total) reporting.'

[79]CASA, Annual report 2024–25, p. 29.

[80]CASA, Annual report 2024–25, p. 32.

[81]Further information about the FRP is available on page 37 of CASA's Annual report 2024–25 or at https://www.casa.gov.au/frp.

[82]CASA, Annual report 2024–25, p. 36.

[83]CASA, Annual report 2024–25, p. 178.

[84]CASA, Annual report 2024–25, pp. 16 and 125.

[85]CASA, Annual report 2024–25, p. 125.

[86]Public Governance, Performance and Accountability Rule 2014, Sch. 2, 2A, and 2B.

[87]Airservices Australia, Annual report 2024–25, pp. 218–219; Australian Fisheries Management Authority, Annual report 2024–25, pp. 160–167; CASA, Annual report 2024–25, pp. 192–195; Infrastructure Australia, Annual report 2024–25, pp. 72–74.

[88]High Speed Rail Authority, Annual report 2024–25, pp. 64–65.

[89]Australian Maritime Safety Authority, Annual report 2024–25, p. 118.

[90]Australian Transport Safety Bureau, Annual report 2024–25, p. 193.

[91]Cotton Research and Development Corporation (CRDC), Annual report 2024–25, p. 115.

[92]Northern Australia Infrastructure Facility, Annual report 2024–25, p. 100.

[93]Department of Prime Minister and Cabinet, Ministry list as at 31 May 2023, 31 May 2023 (accessed 9January 2026).

[94]CRDC, Annual report 2024–25, p. 60; Fisheries Research and Development Corporation, Annual report 2024–25, p. 32; GRDC, Annual report 2024–25, p. 4; Wine Australia, Annual report 2024–25, p. 42.

[95]Department of Prime Minister and Cabinet, Ministry list as at 29 July 2024, 29 July 2024 (accessed 13January 2026).

[96]CRDC, Annual report 2024–25, p. 60.