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Corporate Partnership Board

CPB

2016-12/Photo credit: Port of Dublin

The Case of Dublin

This report analyses Dublin's attractiveness as a cruise port and assesses the impacts of cruise shipping on the city. It evaluates policies in place and provides recommendations to increase the positive impacts of cruise shipping for the city of Dublin. Over the last decade, Dublin has grown as an important port of call for cruises be further increased by developing Dublin into a cruise home port, that is a port from which cruises start and where they end. Under which conditions could this be achieved? Which policy measures would be needed? Which stakeholders would need to be involved? carried out by the ITF in agreement with local institutions.

International Transport Forum

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Email: contact@itf-oecd.org

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The Case of Dublin

The Case of Dublin

The International Transport Forum

The International Transport Forum is an intergovernmental organisation with 57 member countries. It acts as

a think tank for transport policy and organises the Annual Summit of transport ministers. ITF is the only global

body that covers all transport modes. The ITF is politically autonomous and administratively integrated with the

OECD.

understanding of the role of transport in economic growth, environmental sustainability and social inclusion and to

raise the public profile of transport policy.

The ITF organises global dialogue for better transport. We act as a platform for discussion and pre-negotiation

of policy issues across all transport modes. We analyse trends, share knowledge and promote exchange among

transport decision- ministers and the leading global platform for dialogue on transport policy.

The Members of the ITF are: Albania, Armenia, Argentina, Australia, Austria, Azerbaijan, Belarus, Belgium,

Denmark, Estonia, Finland, France, Former Yugoslav Republic of Macedonia, Georgia, Germany, Greece,

Hungary, Iceland, India, Ireland, Israel, Italy, Japan, Korea, Latvia, Liechtenstein, Lithuania, Luxembourg, Malta,

Mexico, Republic of Moldova, Montenegro, Morocco, the Netherlands, New Zealand, Norway, Poland, Portugal,

Romania, Russian Federation, Serbia, Slovak Republic, Slovenia, Spain, Sweden, Switzerland, Turkey, Ukraine,

the United Kingdom and the United States.

International Transport Forum

2, rue André Pascal

F-75775 Paris Cedex 16

contact@itf-oecd.org www.itf-oecd.org

Case-Specific Policy Analysis Reports

-Specific Policy Analysis series presents topical studies on specific

issues carried out by the ITF in agreement with local institutions. This work is published under the responsibility of

the Secretary-General of the International Transport Forum. The opinions expressed and arguments employed

herein do not necessarily reflect the official views of International Transport Forum member countries. This

document and any map included herein are without prejudice to the status of or sovereignty over any territory, to

the delimitation of international frontiers and boundaries and to the name of any territory, city or area. Cite this publication as: I (2016), Cruise Shipping and Urban Development: The Case of Dublin. OECD

Publishing, Paris.

ACKNOWLEDGEMENTS 3

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © OECD/ITF 2016

Acknowledgements

This report forms part of an ITF project on Cruise Shipping and Urban Development, directed by

Olaf Merk. It was written by Olaf Merk and Bénédicte Busquet. The report was made possible through a

voluntary contribution by the Dublin Port Company. Valuable comments on a draft version of the report

were provided by Stephen Perkins and Liv Gudmundson of the ITF. Carla Jong of Amsterdam Port Authority acted as Peer Reviewer during a study visit to Dublin. During this study visit, interviews were conducted with the following stakeholders: Eamonn Shipping), Niamh McCarthy (Excursions Ireland), Margaret Cronin (Specialized Travel Services), Alan Robinson (Docklands Business ForConnor (Burke Shipping Group), Keith Wiggins (Burke Shipping Group), Pat Brennan (Burke Shipping Group), Ciaran Flanagan (IDEA), Kehinde Oluwatsin

Environment and

Transportation Department), Deirdre Scully (Dublin Docklands Development Authority), Greg Swift

(Dublin City Local Enterprise Office), Jim Conway (Eastern Midlands Regional Assembly), David

Brennan (Dublin City Business Association), Richard Guiney (Dublin City Business Improvement

District Now We Are Dublin Town), Gerard Farrell (Dublin City Business Improvement District Now We Are Dublin Town), Orla Carroll (Fáilte Ireland) and Helen McDaid (Fáilte Ireland).

TABLE OF CONTENTS 5

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © OECD/ITF 2016

Table of contents

Executive summary ....................................................................................................................................... 6

Dublin as a cruise port .................................................................................................................................. 9

Traffic impacts ........................................................................................................................................... 13

What drives the competitiveness of cruise ports? ...................................................................................... 14

How competitive is Dublin as a cruise port? ............................................................................................. 16

.................................................................................................................... 19

The economic impacts of cruise shipping for Dublin ............................................................................... 21

Passenger spending .................................................................................................................................... 21

Cruise lines, local expenses and ship provisioning .................................................................................... 25

Revenues for the port authority .................................................................................................................. 25

Policies and governance for the port of Dublin ........................................................................................ 27

Towards a dedicated cruise terminal .......................................................................................................... 27

The need for an urban cruise strategy ........................................................................................................ 27

Underlining cruise shipping in the tourism policy ..................................................................................... 28

.................................................................... 31

The potential for enhanced transport connections ..................................................................................... 36

The governance of cruise shipping in Dublin ............................................................................................ 37

Developing an environmental cruise policy for the port ............................................................................ 38

Recommendations for strengthening Dublin as a cruise port .................................................................... 39

References .................................................................................................................................................... 41

6 EXECUTIVE SUMMARY

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © OECD/ITF 2016

Executive summary

What we did

This study aims to assess the impacts of cruise shipping on urban development in the case of the

city of Dublin, Ireland. It was carried out as part of a programme on Cruise Shipping and Urban

Development at the International Transport Forum (ITF) at the OECD and benefits from a study visit to

Dublin and a series of interviews conducted with relevant stakeholders.

What we found

Dublin has been growing as an important port of call for cruises in Northern Europe over the last

decade. From just over 30 000 passengers in 2003, Dublin hosted close to 149 000 cruise passengers in

2015, which makes it the largest cruise port in Ireland, but much smaller than its main competitor,

Southampton, who had over 11 times more cruise passengers in 2015. Cruise passengers now represent 7 to 8% of total number of tourists coming to Dublin, a share that has increased rapidly over the last decade. Cruise tourism generates significant economic benefits for the city of Dublin. As a port of call,

Dublin receives thousands of extra daily tourists during the cruise season. These cruise tourists tend to

spend an average EUR 100 per passenger per day, according to the Irish Tourism Agency. Land tourists

spend a similar amount, but including accommodation. Their impact in Dublin is perceived particularly

in the tourism, hospitality and retail sectors whereby some beneficiaries develop strategies to maximise

the outcome of their presence. The value cruise tourism brings could be further increased by developing Dublin into a cruise home

port, i.e. a port from which cruises start and where they end, also called turnaround calls. Home porting

generally generates larger local economic value, because it is a way to tie passengers to the city before or

after the cruise voyage. Dublin currently has few turnaround calls but has some significant assets that

could be used to increase the current number. In particular, it benefits from a well-connected

international airport with fast transport connections to the port. One of the main constraints for

developing home porting is the limited amount of Irish residents that go on a cruise in Ireland and the

current lack of a dedicated cruise terminal in Dublin. The potential for Dublin to become a home port will be boosted by the planned dedicated cruise berths at the port. The Alexandra Basin Redevelopment (ABR) project proposes three dedicated cruise

berths closer to the city, which will make Dublin Port much more attractive and safer for passengers. The

planning permission for the ABR project, received July 2015, will allow the port to go ahead with investments for this upgrade. For Dublin to fully realise the potential for home porting, a cruise terminal building would be needed. The ABR project does not foresee a dedicated cruise terminal building, whereas this would

arguably increase the probability of Dublin to develop more home porting activity. Given the seasonality

of cruise tourism in the city, a flexible multi-purpose building structure might make most sense. Cruise

shipping impacts are characterised by split incentives: The benefits flow to economic actors within the

EXECUTIVE SUMMARY 7

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © ITF 2016

city, whereas most of the costs are incurred by the port. This is all the more the case for turnaround calls;

for this reason partnerships would be needed with the city, the transport ministry and private actors that

might reap benefits from cruise turnaround calls, in order to find creative solutions to finance a cruise

terminal building. More generally, Dublin would benefit from an overarching cruise strategy. Such a strategy would

need to define strategic orientations with regards to cruise shipping, including the ambition with respect

to turnaround calls and could cement a partnership with respect to the financing of cruise terminal

building structures. As part of the strategy, improvement of the connectivity of the new cruise terminal to

the city would need to be prioritised, as well as sustaining joint communication between Dublin Port Company and Dublin City Council to attract more cruise passengers to Dublin, not in the least Irish residents that have thus far tended to go on cruise voyages outside Ireland.

What we recommend

Implement the Alexandra Basin Redevelopment Project This project will provide new berths for cruise shipping. Developing more adapted infrastructure for

that the approval from the national planning authority has been granted, implementation could go ahead

at full speed. Develop a joint cruise strategy for the whole city

Such a strategy should include all relevant stakeholders in a partnership between port, city, transport

ministry and local business associations. As part of such a strategy Cruise Dublin could be promoted

through joint marketing and communication of Dublin as a cruise destination. This should involve actors,

such as the port, city, Tourism Ireland, associations and the relevant ministries.

Better ehome port

In order to increase local economic impacts of cruise shipping, Du

home port could be leveraged and the facilities needed for realising such an ambition provided. These

could include a cruise terminal building structure. Given the potential beneficiaries of the cruise home

porting, the city and local businesses should be involved in providing and financing of such facility, in

partnership with the port and possibly other actors. Resolve constraints related to cruise passenger flows Ways to resolve such constraints include more parking spots for coaches and planning to ease

passenger traffic flows between the new cruise terminal and the city centre. Other than dedicated bus

lanes already in place, this could include adaptations to smooth pedestrian flows as well as the extension

of the Luas line into the cruise terminal. The ambition should be to have these measures implemented when the new cruise terminal becomes operational.

Develop a green cruise port policy

This could start with a systematic monitoring of environmental impacts of cruise ships, including air

emissions, to be extended with mitigation measures, such as incentive schemes for cleaner cruise ships,

e.g. ships using low sulphur fuels or applying alternative measures.

DUBLIN AS A CRUISE PORT 9

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © OECD/ITF 2016

Dublin as a cruise port

Dublin is the most important cruise port in Ireland. According to Dublin Port Company, it had

93 calls from cruise ships in 2015, which brought in total 148 891 passengers without counting the crew

included. In 2016, 100 ships will be calling the port. These numbers make Dublin a larger cruise port

than other Irish ports, such as Cork that had 54 calls and 138 000 passengers (including crew) in 2014. In

terms of cruise ship calls, Dublin is also more important than most UK ports; only Southampton and

Dover had more cruise port calls in 2014 (Figure 1). The position of Southampton is very dominant, with

around five times more cruise calls than Dublin. From a European perspective, Dublin could be

considered a medium-sized cruise port. Among the 426 European cruise ports that we have identified in

our cruise port database, Dublin is ranked number 63 in terms of number of cruise ship calls in 2014.

Figure 1. Largest cruise ports in the United Kingdom and Ireland (2014) Source: Own elaborations based on data from Lloyds Intelligence Unit. Cruise shipping is a substantial and rapidly growing part of the tourist numbers to Dublin. In 2013,

their share of cruise passengers was approximately 4.6% of total tourists coming to Dublin. The number

of cruise tourists has risen sharply over the last decade, with passenger volumes almost tripling in size,

from around 32 000 passengers in 2004 to 97 316 in 2014, much quicker than the increase of general

tourists to Dublin over the same period. The growth rate of cruise passengers in Dublin is comparable to

the growth rate of Southampton over the same period, but substantially higher than the growth rate of

Dover, which was approximately 60% growth over the same decade, according to numbers from Cruise

Industry News (2014). Although the number of cruise calls has increased over the last decade, it is at a

much slower pace than the passenger increases, reflecting the development of increased ship size in the

cruise industry. As a result, the number of passengers per cruise ship call has risen steadily over the last

decade (Figure 2). 0 50
100
150
200
250
300
350
400
450
500

Port calls in 2014Port time in 2014 (days)

10 DUBLIN AS A CRUISE PORT

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © OECD/ITF 2016 Figure 2. Average number of passengers per cruise ship call in Dublin (2005-2014) Source: Own elaborations based on data provided by Dublin Port Company.

Despite these growth rates, cruise shipping still plays a fairly marginal role in the port of Dublin,

which is predominantly a cargo port. This can be illustrated by the number of cruise ship calls which

represents only 1.2% of the total ship calls to the port of Dublin. Total cargo volume handled in the port

of Dublin was 31 million tonnes, half of which was Roll-on/Roll-off (Ro/Ro) traffic. Passenger transport

in the port of Dublin is mostly provided via ferry services, with passenger numbers amounting to

1.5 million in 2014, more than ten times higher than the cruise passenger numbers.

The cruise tourism season in Dublin runs mostly from April to September, with around half of the

cruise calls concentrated in only two months (Figure 3). As a result of the seasonal nature of cruise

shipping in Dublin, there are long periods in which the port is not used for cruise activities, whereas at

peak seasons several berths might be needed for cruise ships. In 2014, there were 18 days with two or

more cruise ships at berth, three of which with three ships at the same time and once with four ships

berthing simultaneously. The seasonal nature of cruise shipping in Dublin also has an impact on the way

the city needs to deal with the large amounts of tourists; cruise tourism high season coincides with the

regular tourism high season. The seasonal nature is changing at the margins: while there was no call in

winter only a few years ago, there were four cruise ships calls in December 2014 in Dublin. There are

possibilities to market the city as an all-year destination, capitalising on events like Christmas and the

related shopping activity. Some of these are developing in Northern Europe, similar to Aida creating a

new year round seven-day cruise starting from Hamburg. The trend is also growing in Dublin, with more

and more calls around Christmas and New Years and the emergence of a few calls every month of the year (Figure 3).

Dublin is to a very large extent a transit port for cruise shipping: representing 90% of the calls and

93% of the cruise passengers to Dublin in 2012. This means that Dublin is hardly used as a turnaround

port (i.e. ports where cruise voyages start and/or end). As a transit port, Dublin is integrated within

itineraries as one of the ports where the ship will stop in the morning and leave at night, bringing tourists

in the city for the day. Analysis shows that three-fourths of all cruise ships to Dublin in 2014 stayed in

port between 10 to 14 hours (Figure 4).1 1000
1100
1200
1300
1400
1500
1600
1700

2005200620072008200920102011201220132014

Passengers per call (incl. crew)

DUBLIN AS A CRUISE PORT 11

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © ITF 2016 Figure 3. Cruise calls to Dublin per month (2012-2015) Source: Own elaboration based on data provided by Dublin Port Company.

Figure 4. Cruise port stay time in Dublin (2014)

Source: Own elaborations based on data from Lloyds Intelligence Unit.

Dublin is included in Northern European and Baltic Sea cruise itineraries. Most of the cruise traffic

to Dublin is generated by itineraries within the British Isles which represented almost three-fifths of

cruise calls and passengers to Dublin in 2012, according to Bermello et al. (2012). strong

dependence on cruise itineraries within the British Isles can also be illustrated by an analysis of their

direct cruise connections with other cruise ports, that is: the ports that are called immediately prior to and

after the cruise port call to Dublin. Analysis of the cruise ship calls in 2014 show that half of these are

0 5 10 15 20 25
30

Frequency

Port stay in hours

12 DUBLIN AS A CRUISE PORT

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © OECD/ITF 2016

with a connecting call to only three ports: Belfast, Cork and Liverpool (Figure 5). The number of direct

connections with ports other than Irish or British ones, is very occasional and limited to a few ports, such

as Honfleur, both in France. Figure 5. Ports called immediately prior to or after a cruise port call to Dublin (2014) Source: Own elaborations based on data from Lloyds Intelligence Unit.

There is a large variety of cruise lines that calls the port of Dublin. In 2012, less than half of the

calls were covered by three lines: Princess (32%), P&O (10%) and MSC (7%) (Bermello, Ajamil and

Partners Inc., 2012). This provides Dublin with a more diversified offer than various other cruise ports.

This could be considered both an advantage and a disadvantage. An advantage because this means that

Dublin is less dependent on one cruise line or brand; a disadvantage because there is no cruise line that

seems fully committed to bringing a lot of passengers to Dublin. Three-quarters of the cruise passengers to Ireland come from three nations: USA (37%), UK (26%)

and Germany (12%), and the remainder consist of other Europeans (Fáilte Ireland, 2012). Asian tourists

also increasingly take part in cruises, but do not show up in the statistics in a significant manner. People

over 60 years old represent 55% of cruise passengers to Ireland, and one out of five passengers is under

44 years (Fáilte Ireland, 2012). Most of the cruise passengers to Ireland (86%) are return visitors.

Revealingly, these data are only available at a national level, not per cruise port in Ireland; so we have to

assume that the cruise passenger to Dublin is in line with the profile of the cruise passenger coming to

Ireland.

Dublin currently does not have a dedicated cruise terminal; cruise ships berth at cargo terminals.

Two of those terminals are located in the middle of the working port, mainly handling containers,

Belfast

21%
Cork 15%

Liverpool

14% Greenock

5%

Waterford

5%

Holyhead

4% Dover 4%

Kirkwall

4%

Falmouth

2%

Honfleur

2%

Portsmouth

2%

Avonmouth

2%

Milford Haven

2%

Southampton

2%

DUBLIN AS A CRUISE PORT 13

CRUISE SHIPPING AND URBAN DEVELOPMENT: THE CASE OF DUBLIN © ITF 2016

Roll-on/Roll-off (Ro/Ro) and Lift-on/lift-off traffic (Lo/Lo), but also dry bulk and products like animal

feed. There is another one called berth 18 - located close to the city centre on the west side of the port -

which provides better conditions for cruise passengers. There are no other passenger-related activities on

the terminals where cruise ships currently berth.

the areas and contain passengers when cruise ships are present. The current berth options limit the size of

ships that the port can accommodate to 330 metres. The largest cruise ships cannot berth at the port

which is a competitive disadvantage for Dublin. The current draft of the fairway (7.8 metres) is also

restrictive. Even though cruise vessels are not the deepest ships, the draft is insufficient for the largest

ones on the market as of today. The largest cruise ship that has called the port of Dublin so far was the

MSC Splendida in 2015, at 333 metres long. The operation was successful due to simulation efforts and

the reversing of the ship prior to its entry into the port channel. In comparison, the Allure of the Seas, the

largest ship in the world, has a length of 360 metres and draft of 9.1 metres. The port will have a new

turning circle by 2019, however, which will allow very large ships to access the future cruise berths.

Traffic impacts

Transportation of cruise passengers is one of the large challenges related to cruise tourism in the

city of Dublin. The city centre suffers from significant congestion and especially on major axes like the

quays. The daily traffic of commuters is already very dense, especially at peak hours. The morning peak

hours seem to coincide with the arrival times of most cruise ships to Dublin: more than half of the cruise

ships calling in Dublin arrive between 6:30 and 8:00. These calls are likely to generate coach traffic that

intermingles with the regular urban congestion. The other cruise ship calls were at relatively more

off-peak hours. In terms of ship departures, the overall picture is less concentrated: 40% of the cruise

ship departures in 2014 were between 17:00 and 19:00, but the majority of the departures were later, so

one can assume that the traffic impacts from departing cruise passengers are less coherently coinciding

with urban traffic flows.

Because of the lack of space, there is also a lack of available parking and drop-off areas for coaches.

On relatively large cruise ships, around 50-60% of passengers have pre-booked an excursion which

means that over 1 500 passengers could be moved around the city (or its surroundings) during the day.

This is multiplied when there are several ships at the same time. For each ship there are a number of

coaches responsible of picking up and dropping off the passengers on the various sites of their tours.

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