Creating a City of Culture: Lessons from Arts, Health, and Innovation

“A City of Culture should never be a one-off event; it must be part of a wider, long-term strategy.” – Professor Rafaela Neiva

The idea of a City of Culture is often misunderstood as a year of festivals and photo opportunities. In reality, it is a profound commitment to embed arts, health, and innovation into the fabric of a city’s development. Done well, it becomes a catalyst for economic growth, social cohesion, and improved public health.

Professor Rafaela Neiva, a leading voice in cultural policy and social innovation at Liverpool Business School, emphasises that cultural investment is not a luxury but a necessity:

“Culture offers us an opportunity to address multiple issues that are pressing in our contemporary societies from climate sustainability to democratic engagement and community well-being.”

This designation is more than branding; it is a strategic intervention that can transform how cities think about regeneration, inclusivity, and resilience. Evidence from previous programmes shows that cultural initiatives can:

• Boost local economies – Hull’s UK City of Culture year generated £1 billion in economic impact and attracted 5.3 million visitors.

• Improve health outcomes – WHO research confirms that arts engagement reduces anxiety and depression symptoms by up to 20%.

• Strengthen civic participation – Cultural programmes increase social connectedness and community pride, which are vital for democratic engagement.

Creating a City of Culture is not about parachuting in big-ticket events; it is about weaving a cultural tapestry that reflects the diversity, heritage, and aspirations of local communities. It requires years of planning, robust evidence, and a clear vision that is authentic to the place.

Why Does City of Culture Matter?

“Arts and culture have instrumental value across multiple sectors… increasing cultural participation, perceptions of well-being, and civic engagement.” – Professor Rafaela Neiva

The designation of a City of Culture is not simply about hosting events; it is about embedding culture as a driver for social and economic transformation. Cultural programmes create ripple effects that touch education, health, regeneration, and even democratic engagement.

Evidence shows that cultural investment delivers tangible benefits:

• Economic Growth: Hull’s year as UK City of Culture in 2017 generated £1 billion in economic impact, attracted 5.3 million visitors, and boosted local employment in creative industries.

• Health and Well-being: The World Health Organisation (2019) concluded that arts engagement can improve mental health outcomes, reduce loneliness, and enhance social cohesion. Arts-based interventions have been linked to a 20% reduction in anxiety and depression symptoms.

• Community Cohesion: Cultural programmes strengthen civic pride and participation. Research by Arts Council England found that culturally inclusive initiatives increase community engagement by up to 40%.

Professor Neiva highlights that culture is not an optional extra:

“It offers us an opportunity to address multiple pressing issues from climate sustainability to democratic engagement and community well-being.”

In short, investing in culture is investing in people. It is a strategic lever for healthier, happier, and more resilient communities.

Critical Success Factors

“The main issue would be the coherence of a concept… something true to a place.” – Professor Rafaela Neiva

Winning a City of Culture bid is not about flashy branding or headline acts; it is about creating a vision that is authentic, strategic, and sustainable. Professor Neiva stresses that success begins with a concept that reflects the identity and aspirations of the city:

“It must make sense for that particular place its heritage, its future direction, and the communities that call it home.”

What does this mean in practice?

• Authenticity

  A successful bid is rooted in local heritage and cultural narratives. It should celebrate what makes the city unique while projecting a clear vision for the future. Cities that try to copy others often fail to resonate with their own communities.

• Evidence-Based Planning

  Cultural strategies must be underpinned by robust data and aligned with wider social and economic objectives. For example, Hull’s cultural programme was integrated into its regeneration plans, contributing to a 9% increase in employment in creative industries during its City of Culture year.

• Community Engagement

  Engagement cannot be an afterthought. It is a multi-year process of building trust, co-creating programmes, and ensuring representation from diverse communities. Research by Arts Council England shows that projects developed with community input are 60% more likely to achieve sustained participation beyond the event year.

Professor Neiva warns against the “parachute approach” of short-term engagement:

“Community engagement doesn’t happen overnight. It requires time, resources, and genuine commitment to co-creation.”

In short, a winning bid is not just about delivering a spectacular year it is about laying the foundations for cultural growth that lasts for decades.

Balancing Ambition and Reality

“How do we balance the wow moment with long-term community projects?” – Professor Rafaela Neiva

This is one of the greatest challenges for any City of Culture programme. Large-scale spectacles the headline concerts, international artists, and iconic installations create powerful images and attract media attention. They deliver the “wow factor” that funders and politicians often seek. But if the ambition stops there, the impact will fade as quickly as the fireworks.

Professor Neiva argues that the real measure of success lies in what happens after the crowds leave:

“We need to balance the short-term excitement with investments that create lasting change within communities.”

Liverpool’s experience as European Capital of Culture in 2008 illustrates this point. While the city enjoyed global attention during its cultural year, its true legacy was long-term:

• £753 million in economic benefits

• A sustained increase in cultural participation, with 68% of residents attending at least one cultural event during the year

• Growth in creative industries employment and regeneration of previously neglected neighbourhoods

The lesson is clear: cultural programmes must combine headline acts with grassroots initiatives that strengthen local identity, build skills, and foster community pride for years to come.

Inclusivity and Diversity

“Community engagement cannot be parachuted in… it’s an ongoing process.” – Professor Rafaela Neiva

Inclusivity is not a box to tick it is the cornerstone of a successful cultural strategy. A City of Culture must reflect the diversity of its communities, ensuring that every voice is heard and every heritage celebrated. This requires deep, sustained engagement, not last-minute consultation.

Evidence shows that inclusive cultural programmes deliver measurable benefits:

• A 2023 Arts Council England report found that culturally diverse programming increases audience engagement by up to 40%.

• Research by the Creative Industries Policy & Evidence Centre highlights that projects co-created with underrepresented groups lead to higher levels of trust and participation.

Professor Neiva emphasises that this work takes time:

“Building trust and understanding communities’ aspirations cannot happen overnight. It requires resources, commitment, and a genuine willingness to co-create.”

Cities that succeed in embedding diversity into their cultural strategies create stronger social bonds, reduce inequalities, and ensure that the cultural legacy belongs to everyone not just a privileged few.

Measuring Impact

“We need solid, convincible evidence… collected across time to demonstrate change.” – Professor Rafaela Neiva

A City of Culture programme represents a significant investment of public funds, so demonstrating impact is essential not just for accountability, but for learning and improvement. Professor Neiva stresses that evaluation should never be an after thought:

“Metrics must be considered upfront, because convincing stakeholders requires robust evidence of positive change.”

What should we measure?

• Cultural Participation Rates

  How many residents attend events? Are previously underrepresented groups engaging? For example, Hull’s City of Culture year saw 68% of residents attend at least one cultural event, a major increase from baseline figures.

• Well-being Indicators

  Surveys and qualitative research can track improvements in life satisfaction, mental health, and social connectedness. Arts Council England reports that arts engagement correlates with higher well-being scores across all age groups.

• Economic Impact

  Jobs created, visitor spend, and growth in creative industries are key metrics. Liverpool’s European Capital of Culture legacy delivered £753 million in economic benefits and boosted employment in cultural sectors.

• Qualitative Stories

  Numbers alone cannot capture the richness of cultural impact. Personal narratives, community case studies, and artistic outputs provide depth and meaning to the data.

Professor Neiva highlights the complexity of evaluation:

“We need to combine quantitative and qualitative evidence numbers, words, images, even artistic interventions to tell a complete story of change.”

Health and Well-being

“Creative health is gaining momentum… influencing perceptions of life satisfaction and mental well-being.” – Professor Rafaela Neiva

Culture is increasingly recognised as a public health asset. The World Health Organisation’s landmark report (2019) aggregated evidence from over 900 studies, confirming that arts-based interventions can:

• Reduce symptoms of anxiety and depression by up to 20%

• Improve cognitive function and social engagement in older adults

• Support recovery and resilience in children and young people

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Professor Neiva’s own work illustrates this impact. Programmes like House of Memories, a museum-led initiative, have transformed dementia care by using cultural memory to improve quality of life for older adults. Similarly, creative health projects at Alder Hey Children’s Hospital have enhanced mental health access for young people through arts-based approaches.

These examples demonstrate that cultural policy is not just about entertainment it is about prevention, treatment, and holistic well-being. As Professor Neiva notes:

“Culture shapes how we feel, how we connect, and ultimately how healthy our communities are.”

Lessons from Europe

“The value is in passing the baton… peer support and knowledge exchange.” – Professor Rafaela Neiva

European Capitals of Culture have set a global benchmark for cultural transformation. Since its inception in 1984, the programme has demonstrated how culture can be a driver for regeneration, innovation, and social cohesion. Professor Neiva highlights three key lessons:

• Upskilling Smaller Cities

  European initiatives have helped smaller and medium-sized cities develop cultural capacity, professionalise their creative sectors, and embed culture into long-term development strategies.

• Embedding Culture as a Driver for Development

  Culture is not treated as an add-on but as a central pillar of economic and social planning. Cities like Lille and Linz have used their cultural year to accelerate urban regeneration and digital innovation.

• Creating Networks for Knowledge Sharing

  Peer learning and collaboration are critical. The European model encourages cities to share best practice, transfer knowledge, and build partnerships that endure beyond the cultural year.

Professor Neiva stresses that this approach is not yet fully realised in the UK:

“We need to move beyond isolated projects and create systems of support and knowledge exchange that help cities learn from each other.”

Final Thought

Culture is not a luxury it is a catalyst for economic growth, social cohesion, and public health. It strengthens communities, attracts investment, and improves well-being. As Professor Neiva reminds us:

“A City of Culture should be part of a wider strategy, not a one-off event.”

For local authorities, the message is clear: cultural investment is not about chasing headlines it is about creating legacies. Done well, it can transform not just a city’s image, but its future.