Living with water: heritage, flooding and resilience in Hull

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.

AGREE is funded by the Arts and Humanities Research Council - UK; Ministry of Education, Universities and Research (MUR) - Italy; and Research Council of Norway - Norway. The project consortium comprises the University of Leeds, UK (lead institution); Politecnico di Torino, Italy; the Norwegian Institute for Cultural Heritage Research (Norway); and societal partners: the International Centre for the Study of the Preservation and Restoration of Cultural Property (ICCROM); the British Council; the Department for Culture, Media and Sport (DCMS); Hull City Council and the Innlandet County Authority, Norway.