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The Advancing Cultural Heritage Governance for Resilient Climate Adaptation (AGREE) project focuses on integrating cultural heritage into disaster risk management strategies, particularly in flood-prone regions. Climate change intensifies natural and socio-economic impacts globally, leading to more severe weather events, such as floods, that threaten lives, infrastructure, and heritage sites.

The Intergovernmental Panel on Climate Change (IPCC) defines climate risks as the result of interactions between human and ecological systems’ climate-related hazards, exposure, and vulnerability. Urban cultural heritage can be better protected by enhancing disaster risk management strategies that account for its unique and complex vulnerabilities.

Lillehammer, situated along the river Mesna in Norway’s Gudbrandsdal Valley, represents an ideal case study for AGREE, given its historical and cultural value and exposure to flooding. This post will illustrate Lillehammer’s history and cultural heritage, as well as its challenges and opportunities in evolving risk management practices and adaptation strategies.

Flooding in Norway (taken from Infotiles):

• Floods are mainly due to snowmelt and extreme rain
• Spring is the high season for floods in eastern Norway
• It will cost 85 billion Norwegian Kroners (NOK) to secure buildings against floods and landslides
• 210,000 buildings in Norway need protection against floods and landslides, according to the Norwegian Water Resources and Energy Directorate.
• In the last 10 years, damage caused by weather and natural events has cost 27 billion NOK in Norway. Some of this damage could be prevented with a warning system and swift action from the municipalities.

Lillehammer: A historical overview

Located at the northern end of Lake Mjøsa, Lillehammer has been a hub for trade and settlement since its early days. The town achieved city status in 1842, shaped by industrial expansion and strategic positioning along major transportation routes. The river Mesna has historically been central to Lillehammer’s development, supporting trade, transport, and hydropower generation. Lillehammer was founded according to the principles of urban planning in the 19th century, following classical European design, with a grid layout and orderly streets. This planned approach emphasised aesthetics, symmetry, and functionality, with each structure designed to reflect the city’s cultural and architectural heritage.

Urban development in Lillehammer exemplifies the early practices of modern urban governance, where city planning was understood as both a technical and legal endeavor. In the 1800s, the prevailing mindset viewed natural landscapes as manageable and incorporated them into the city’s layout. This approach resulted in a distinctive combination of urban and natural elements, creating an ordered cityscape where buildings and streets harmonized with the surrounding landscape. Indeed, these qualities, closely linked to Lillehammer’s mountain landscape, contributed to the city hosting the 1994 winter Olympics.

Lillehammer’s relationship with the Mesna River

The river Mesna, flowing through Lillehammer from the east, has played a defining role in the city’s history and continues to influence its urban landscape. Over the years, different views on the river’s value and purpose have emerged. Initially, Mesna served as a critical resource for hydropower and transportation, supporting industries like logging and milling. In the early 20th century, log driving on the Mesna facilitated timber movement, reinforcing the river’s industrial importance.

However, by the late 19th century, attitudes towards nature conservation gained traction, with the river’s waterfalls attracting tourists and inspiring artists. As Norway’s national focus shifted toward environmentalism, the river began to take on recreational and aesthetic roles. Today, the Mesna is a popular site for leisure activities, with locals and tourists enjoying its scenic beauty from walking paths, parks, and riverside cafes. This evolving relationship with the river reflects broader changes in society’s values and priorities.

Dr Paloma Guzman surveys the Mesna river which runs through the center of Lillehammer. The river has played an important role in the industry of the city. Photo credit: Ole Fredrik Unhammer

Cultural heritage and flood risks in Lillehammer

Lillehammer’s rich cultural heritage and the increasing frequency of extreme weather events pose unique challenges. Floods in Norway are primarily driven by snowmelt and heavy rainfall, and climate change is expected to intensify these occurrences. Notable floods in Lillehammer, such as the “Storfosen” of 1789 and Vesleofsen in 1995, have caused significant damage, particularly from debris, such as timber washed away from sawmills upstream. As floods disrupt daily life and damage property, they threaten the preservation of heritage sites, which hold cultural and historical significance for the community.

Flood risk management in Norway has traditionally relied on physical interventions, such as levees and stone riprap, to protect vulnerable areas. However, there is a growing recognition that traditional infrastructure alone is insufficient to address the complex challenges of climate change. For instance, flood control measures in Lillehammer have expanded beyond physical barriers to include predictive systems and adaptive planning, which aim to mitigate risk while respecting the town’s historic character.

Integrating heritage into disaster preparedness: Lillehammer’s approach

Recognising the importance of cultural heritage in fostering social identity and resilience, Norwegian authorities are exploring ways to integrate heritage preservation into broader risk management frameworks. In collaboration with local and national authorities, the AGREE project has participated in testing a national pilot project for the risk and vulnerability analyses specific to cultural heritage sites. These assessments, known as ROS analyses (risiko og sårbarhetsanalyser), help identify potential hazards and vulnerabilities that could impact heritage sites during natural disasters.

A recent example of these efforts followed the extreme weather event “Hans,” which caused severe flooding and landslides, highlighting the need for robust preparedness plans. Such initiatives prioritise protecting cultural assets while enhancing the municipality’s readiness to respond to future climate-related events.

AGREE’s view on Historic Urban Landscape (HUL) approaches can be a valuable framework for municipalities to incorporate cultural heritage into their disaster planning. Our starting point is that this challenge requires fundamental and paradigmatical changes in managing urban cultural heritage. These should involve climate policies that address lifestyles and society in a broad way so that HUL conservation can create sustainable changes.

The IPCC defines transformation in the context of climate change adaptation as “the altering of fundamental attributes of a system (including value systems; regulatory, legislative, or bureaucratic regimes; financial institutions; and technological or biological systems)”. Thus, cultural heritage management is increasingly linked to biodiversity protection, just energy transitions, urban equity, and inclusive development.

Evolving urban governance and flood preparedness in Lillehammer

Modern urban planning in Lillehammer reflects a balance between development and preservation, integrating flood risk management into the city’s governance framework. Historical urban development in Lillehammer imposed a structured grid layout over the natural landscape, characterised by rich water streams. This practice was typical of the 19th century, aiming to control and organise the environment. This approach has gradually shifted as contemporary urban governance increasingly considers natural dynamics and climate impacts in planning decisions.

Today, Lillehammer’s approach to urban governance involves integrating natural landscape elements, like the Mesna River, into urban planning decisions that respect heritage values while addressing modern-day environmental challenges. The river Mesna, once a symbol of industrial power, has transitioned into a valued recreational and ecological asset. This change has led to the development of public spaces along the river, encouraging interaction between the town’s residents and its natural surroundings. These evolving practices underscore the role of urban governance in mediating human-nature interactions within a cultural landscape.

Future directions: a preparedness plan for cultural heritage

As part of the AGREE project’s objectives, the Norwegian Institute for Cultural Heritage Research (NIKU) participated in a pilot project led by the Norwegian Directorate of Cultural Heritage to strengthen municipalities’ heritage protection through a comprehensive preparedness plan that accounts for several risks, including environmental hazards. The project is working on refining guidelines that will provide municipalities with a unified methodology for conducting these analyses, integrating heritage protection into broader social security frameworks.

The Risk and Vulnerability Analysis workshop participants attended an on-site assessment of the wooden house environment in Storgata. Photo credit: Ole Fredrik Unhammer

Working with practitioners and authorities, NIKU aims to contribute to the shift in Norway’s approach to disaster preparedness, placing cultural heritage alongside other critical governance areas of concern, such as infrastructure and public health. AGREE’s research efforts could have a significant transfer potential for many European regions, where heritage sites face heightened flooding risks. The forthcoming preparedness plan will be valuable for local governments, helping them safeguard heritage sites while addressing contemporary climate challenges.

Lillehammer’s legacy and resilience

Lillehammer’s experience illustrates how urban planning and heritage management approaches must transform and adapt to changing environmental conditions while preserving cultural identity. Integrating heritage into flood risk management reflects a broader trend in urban governance, where cultural assets are increasingly recognised as essential components of community resilience.

In this way, the AGREE project’s case study on Lillehammer illuminates the transformative role of cultural heritage in fostering resilience, offering valuable insights for other communities facing similar climate risks. AGREE aims to support collaborative efforts and forward-looking policies in Lillehammer as a town that respects its history while preparing for an uncertain future.

Read our previous blog post to find out more about our UK case study – Hull.

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Authors: Dr Paloma Guzman and Ole Fredrik Unhammer

As climate change continues to present significant challenges to our governance systems, innovative and integrated solutions are essential for building community resilience and effective climate adaptation.

Our project, Advancing Cultural Heritage Governance for Resilient Climate Adaptation (AGREE), focuses on collaborative strategies across Europe to enhance our understanding and management of cultural heritage amidst climate change and flood risk. In this post, I  introduce the first of our three project case studies, highlighting the unique context of Kingston upon Hull (often referred to as “Hull”). We will explore the city’s challenges and opportunities for adaptive governance in response to these pressing issues.

Understanding Hull: A city shaped by water and heritage

Hull, situated in East Yorkshire, England, is a city rich in cultural heritage and history, yet it faces significant climate-related challenges, particularly flooding and coastal erosion. As a low-lying area, with approximately 90% of the city below sea level at high tide, Hull ranks as the UK’s second most vulnerable city to flooding, after London.

Designated as the UK City of Culture in 2017, Hull is one of the country’s major port cities, known for its trading links with Europe and its heritage sites, which encompass maritime history, architectural landmarks, and urban landscapes. Hull is also celebrated as the birthplace of William Wilberforce, with Wilberforce House serving as a poignant reminder of the historical fight against slavery, both past and present. Additionally, Beverley Gate, located in the city centre, marks the site where Charles I was denied entry, an act widely recognised as a catalyst for the English Civil War. This rich tapestry of history is reflected in the diverse array of historic buildings and structures found throughout the city, particularly in the Old Town.

For over 800 years, Hull has fostered a distinctive connection with its waterways, including the River Hull and the Humber Estuary. Originally established as a trading port for exporting lead, grain, and wool during the medieval era, Hull transitioned from the ownership of the monks of Meaux Abbey to King Edward I of England in 1293, who renamed it Kingston upon Hull. By the end of the 18th century, Hull had become the largest whaling port in the country and developed into a major fishing centre by the late 19th century. The town remained confined within its medieval boundaries until the late 18th century, when it began to expand rapidly.

Today, Hull, with its 20th-century waterfront docks, sits at the heart of the Humber Port complex, the largest in the UK, and is also home to one of Europe’s largest wind turbine manufacturing plants. This development underscores Hull’s ambition to become a leading national centre for the offshore renewables sector, highlighting its commitment to innovation and sustainability in the face of climate challenges.

Throughout its history, Hull has encountered significant flooding events that have driven innovative solutions and adaptations to manage this persistent threat. The city’s relationship with water has been marked by destructive floods that have influenced its development. As early as the 1700s, windmills were constructed to pump water away from low-lying areas, and by 1980, the River Hull Tidal Surge Barrier was built to protect against tidal surges.

However, despite these efforts, Hull has faced considerable challenges. The long-duration rainfall event in November 2000 saturated the ground and flooded low-lying areas, while the intense rainfall in June 2007 overwhelmed the city’s drainage systems. The tidal surge of December 2013 posed unprecedented challenges, with record water levels causing significant flooding in Hull and its surroundings, including more than 400 properties and main roads.

The floods of 2007 were particularly devastating, marking a turning point in Hull’s relationship with water. During those tumultuous weeks, the city experienced its wettest May to July on record since 1776, leading to approximately 7,800 homes flooded and 1,300 businesses affected, with repair costs estimated at a staggering £200 million. Such incidents serve as blunt reminders of the challenges Hull faces as it strives to safeguard its future.

In this context, the implications of climate change are profound and multifaceted. The global climate is shifting, leading to long-term changes in average weather conditions, including higher temperatures, altered precipitation patterns, and rising sea levels. Hull faces wetter winters, drier summers, and more frequent occurrences of intense rainfall. These changes increase the likelihood of flash flooding as drainage systems become overwhelmed, which is particularly concerning given that existing sewage systems infrastructure is already operating at capacity.

Responding to flooding and climate change

Hull serves as an exemplary case study, offering valuable insights into historical responses to recurrent flooding across various eras. Understanding the city’s specific needs and developing tailored strategies are essential for preserving its cultural identity while ensuring resilience.

Hull illustrates how local communities navigate flooding challenges within their cultural, geographical, historical, and policy contexts. This comprehensive perspective emphasises the adaptive responses and innovative policies necessary for addressing environmental hazards and enhancing societal resilience in waterfront areas.

However, whilst navigating these complexities, Hull faces a challenging financial landscape. With reduced budgets and funding cuts increasingly common, managing flood risk has become more daunting than ever. The need for collaboration across policy sectors  at different scales has never been more critical.

One of the most perplexing challenges in flood risk management in the UK is the multitude of authorities involved. While each plays a role, the lack of clarity regarding responsibilities can lead to confusion. It is essential to recognise that no single authority has a legal obligation to prevent flooding; in many cases, completely halting floods is simply not feasible, as nature often follows its own course. Instead, Risk Management Authorities (RMAs) are tasked with assessing risks and implementing mitigation strategies wherever possible.

Hull’s flood risk management strategy 2022-2028 reflects this reality by thoroughly examining the various flood risks that threaten the community. Drawing from lessons learned from past events, the city’s approach is informed by both historical precedents and urgent needs. It is not just about recovering from past disasters; it is also about preparing for the future. Like many coastal cities, Hull must look ahead to future generations, developing strategies that not only protect its heritage but also foster resilience in an uncertain climate.

A key initiative aimed at building resilience is the Living with Water partnership, which envisions a thriving city that embraces its relationship with water. Over the past six years, more than £220 million has been invested in flood infrastructure to mitigate the risk of flooding to homes and businesses in Hull, achieved through collaborative efforts with other risk management authorities.

As flood risk is anticipated to worsen with climate change, the focus over the next six years will be on enhancing resilience and preparedness. This will involve integrating nature-based solutions alongside engineered flood infrastructure, promoting a holistic approach to managing local flood risk while addressing the environmental challenges associated with climate change.

The role of cultural heritage

As Hull evolves, it is critical to ensure that its distinctiveness is preserved amidst these changes. This includes recognising the maritime role that has shaped its identity and the significance of historic buildings, all while adapting to the realities posed by climate change.

But what is the role of cultural heritage in the context of climate change and flooding? This is precisely what we aim to explore through our AGREE project. How have cultural heritage and community resilience been influenced over time by various flooding experiences? In what ways have these historical flooding events impacted local policies? Moreover, how can we foster a stronger integration of cultural heritage, climate change, and flood disaster risk management policies to bolster both heritage and community resilience in the face of a changing climate?

These are some of the key questions we seek to address in our work. Hull City Council, alongside representatives from the climate change and disaster risk management offices, is a partner in our project. Their involvement will help facilitate collaborations with local stakeholders, access valuable local databases—including Geographic Information Systems (GIS) and historical archives—and maximise our impact.

On a national level, the UK’s Department for Culture, Media and Sport (DCMS) is also a research partner. They will support us in connecting with and learning from various national policymakers at DCMS, the Department for Environment, Food & Rural Affairs (DEFRA), and the Department for Energy Security & Net Zero (DESNZ). These partnerships represent a significant opportunity to bridge cultural heritage governance with broader national, regional, and local climate adaptation strategies.

Next steps

The Hull case study exemplifies the AGREE project’s commitment to advancing cultural heritage governance in the context of climate adaptation. While the research team actively collects and analyses current policies across various sectors, we are also focused on fostering new collaborations and synergies with local stakeholders.

As the project leader, I have been invited to present our work and discuss potential synergies with the Yorkshire and Humber Climate Commission (YHCC). This independent advisory body aims to unite public, private, and third-sector actors to support ambitious climate actions across the region. I look forward to gathering feedback and exploring collaborative opportunities with a broader range of local authorities participating in the Climate Adaptation Programme for Local Authorities (CAPLA).

By fostering these connections, we aim to deepen our understanding of the unique challenges facing Hull and develop adaptive strategies that not only protect our cultural heritage but also enhance community resilience in the face of climate change.

Are you curious about our other project case studies? We will shortly publish other posts on the Research and Innovation Blog featuring our case studies from Lillehammer in Norway, and Moncalieri (Turin) in Italy. You can also visit our project website to keep up-to-date with our project activities and join the AGREE LinkedIn group.

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Author: Dr Francesca Giliberto