JOURNAL OF WORLD HERITAGE STUDIES・SPECIAL ISSUE 2019・DISASTERS AND RESILIENCE ISSN 2189-4728

The Mixed Heritage Values of

Mount Mayon Natural Park:
A Case Study on Harnessing
a People-Centered Approach
to Nature-Culture Linkages
Conservation in a Multi-
Hazard Context
Jefferson M. Chua
Philippine National Commission for UNESCO, G/F Department of Foreign Affairs Building, 2330 Roxas
Boulevard, Pasay City 1300 Philippines; +63 (917) 550 7525, [email protected]

■■Abstract

This essay will explore how the mixed heritage values of Mount Mayon Natural Park (MMNP) can be utilized
to craft people-centered disaster mitigation mechanisms in a multi-hazard context. Apart from frequent
volcanic activity, the greater area of Mayon is also frequented by other disasters. This was exemplified in the
November 2006 disaster involving Typhoon Reming/Durian, where it inundated the slopes of the recently
erupted Mayon, causing destructive mudflows that reached towns outside the designated danger zones.
While there were disaster risk mitigation plans in place, the sheer scale of the disaster shows that there are
still gaps in the overall management regime around the site, which can be improved. These gaps can be
possibly addressed through the ongoing efforts of nominating Mayon Volcano as a World Mixed Cultural
and Natural Heritage Site; specifically, in adopting a people-centered approach that looks at nature-culture
linkages for heritage conservation as a tool in crafting innovative disaster risk reduction mechanisms.

KEY WORDS: Mayon, Volcano, Multi-hazard, World Heritage, Mixed Site

■■1. Introduction approximately 20,000 years ago and is part of a

cluster of volcanoes lining the subduction zone
1.1 Overview of the heritage site between the two plates. Because of its placement
on a highly restive portion of the Earth’s crust,
Rising up to 2,462 meters above sea level, Mayon follows a cyclical and relatively regular
Mayon Volcano, the centerpiece of the Mount Vulcanian-Strombolian eruption sequence,
Mayon Natural Park, is a classic, conical, Basaltic- making it the most active volcano in the Philippine
Andesitic Stratovolcano, whose natural heritage archipelago, with 50 eruptions since recordings
values have been essential to the cultural fabric began in 1616. This ensures that new layers of
of the communities around it. A product of volcanic material constantly replace any natural
the convergent boundary where the Philippine deformation, common in volcanic landscapes,
Mobile Belt subsumes the thinner, but heavier, forming an unusually concave profile indicative of
Philippine Sea Plate, the volcano was formed the interplay between creation and destruction

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throughout its geologic history. This creates a on a 10-kilometer radius set by the Philippine
unique, natural regulatory, system that maintains Institute for Volcanology and Seismology (PHIVOLCS)
the volcano’s near-perfect symmetrical shape. This [Fig. 1 (a)]. Set in a landscape predominated by plains
cycle of creation and destruction is reflected, as and low-lying hills west of Albay Gulf, its imposing
well, in the cultural values that have been enriched profile is visible from the base to the summit, has
through the lived experiences of the communities, been noted for its symmetry, and has often been
with the aesthetic and physical qualities of the described as a “near-perfect cone” (Fernandez
landscape. This is demonstrated in the manner 2001).
communities have utilized the surrounding lands
for agricultural use and mining, providing them with The politico-administrative boundaries of the
much-needed raw materials for sustenance and cities and municipalities of Albay are symmetrically
development. Conversely, communities have also notched from the crater rim of Mayon Volcano, with
had to deal with the destructive effects of living in the City of Tabaco and the Municipality of Malilipot
an abundant landscape, with infamous historical in the northeast; the Municipalities of Sto. Domingo
eruptions, leaving traces, not only on the physical in the east quadrant; the City of Legazpi and the
landscape but also in the intangible heritage of Municipalities of Daraga in the southeast quadrant;
the community. This has resulted in a rich cultural the Municipality of Camalig in the south; and the
tapestry of visual art, traditions, and performances, City of Ligao and the municipality of Guinobatan in
and most importantly, the formation of resilience the southwest [Fig. 1 (b)].
values through community stories and local myths
that also act as indigenous disaster risk reduction
schemes. These values have also led to the ease of
adapting modern disaster risk mitigation plans and
regimes, representing continuity in the community’s
relationship of resiliency with the landscape.

1.2 Brief description of the landscape

Mayon Volcano is the highest mountain in Southern

Luzon. On its summit is a small crater that serves Figure 1 (b) : Political Map of Albay (Source : Wikipedia
2016)
as an outlet of its single vent. The volcano’s circular
base has a circumference of 62.8 kilometers, based

Figure 1 (a) : Mayon’s proposed visual easement map (Source: Albay PLGU 2017)

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■■2. Mount Mayon Natural Park’s (MMNP) Mixed and has also become an important symbol and
Cultural and Natural Heritage Values source of heritage values. Local origin myths
of the volcano, such as the legend of Daragang
Mayon Volcano’s intertwined cultural and natural Magayon – Magayon meaning beautiful in Bikolano
heritage values are manifested in the associative –, are directly associated with the aesthetic
relationship communities have with the active appreciation of the volcano’s geomorphology. The
volcanic landscape. In this regard, the cultural local pantheon of gods also identifies Mayon as
fabric of the communities living around the site their sacred earthly abode, with the supreme god,
is inextricably linked to their interaction with the Gugurang, said to have left the heavens to reside in
landscape, which can be characterized in two the volcano. Mayon’s eruptions, in this case, were
major ways: (1) the community’s rich tangible and seen as a manifestation of Gugurang’s sacred fire
intangible heritage resources borne out of their lived and the resulting fertility of the land was a blessing
experience of the volcanic landscape’s aesthetic from the gods. This resulting fertility has also been
qualities and (2) the landscape symbiosis and a source not only of economic development but
community resilience in response to the geologic also further enriching the cultural heritage of the
activity of the volcanic landscape. Thus, it can be area. Examples include agricultural festivals, such
said that communities around the landscape live in as the Pagsuwak Festival in Guinobatan, festivals
a cycle of creation and destruction, of flourishing syncretized with Christian beliefs, such as the
and adaptation, in response to the regular but Himoloan Festival in Oas in honor of St. Michael the
unpredictable changes brought about by the Archangel, and festivals specific to the celebration
landscape’s geological activity. of Mayon as a cultural symbol, such as the Cagsawa
Festival in Daraga and the Sarung Banggi Festival of
First, the cultural resources of the Sto. Domingo. Moreover, its symbolic significance,
communities around Mayon have flourished because of its aesthetic qualities, have made it a
extensively, owing to their interaction with the reference point for the region in numerous historical
various natural aesthetic phenomena associated accounts and travel logs from the Spanish colonial
with the landscape, specifically the volcano’s era, easily recognizable and admired for both its
symmetrical shape and the concurrent geological beauty and destructive activity. Mayon has likewise
activity associated with its geomorphology. The contributed to the evolving science of volcanoes
volcano’s symmetrical shape is attributed to its worldwide, especially during the 18th century, during
ongoing geological activity, where its relatively which the direct scientific observations by Spanish
mild Vulcanian-Strombolian eruptions act as scientists have contributed to the modernization
natural maintenance mechanisms, as well as the of the understanding of volcanic phenomena
corresponding Basaltic-Andesitic qualities of its (Jimenez 2007). Numerous visual artworks and
ejecta. During Mayon’s eruptions, lava piles up literary pieces bear testament to the enduring and
at the summit crater from the volcano’s singular universal appreciation of the volcano’s aesthetic
vent, covering older deposits and maintaining the qualities, especially during its most destructive
upward movement of the volcano. These cappings phases. Its geometry and notorious history have
eventually give way due to the collapse of the made it a global icon for volcanoes, known for its
crater rim during major eruptions, distributing shape, identifiability, and the dangers it poses to
the buildup to its lower slopes (Punongbayan and those living around it, thus becoming an essential
Ruelo 1985). The lava’s moderately high viscosity, pedagogical aid in science education on volcanism
the high degree of crystallinity, and high yield and geology (Wood 2009).
strength are compensated by the effect of the
gravitational pull. Due to its steep slopes, volcanic In addition to the cultural heritage
material is evenly distributed around it, resulting in associated with the landscape’s aesthetic qualities,
its uniquely symmetrical shape without any unusual its interaction with the people has also provided
cone elongation relative to anywhere around it. The the ground for the communit y ’s adaptive
combination of these geologic processes produces practices, especially in the context of the drastic
its iconic shape whose aesthetic quality is further and irreversible changes brought about by the
enhanced by its notoriety and its proximity to dynamic geological and meteorological processes
human communities. in and around the site. This symbiosis between the
landscape and the communities around it is thus a
Mayon’s eruptive history and its aesthetic representative example of the dynamic interplay
quality has directly contributed to the enrichment between volcanoes and the human communities
of the cultural heritage around the landscape living around them.

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The fer tile slopes of Mayon and the quality. Likewise, the volcanic deposits have also
immediate plains of the landscape have become been identified and extracted for mining operations,
a primary source of livelihood in the area since with the volcano’s frequent activity regularly
pre-colonial times, with agriculture becoming the supplying these sites with minable material. This
dominant industry due to the soil’s fertility [Fig. 2 (a)]. has resulted in the use of these raw materials for
Crops, such as taro, abaca, coconut, rice, and sugar, the construction of structures imbued with cultural
comprise the majority of agricultural produce, some significance, for instance, the Churrigueresque
of which, such as taro and abaca, are prized for their Baroque-style church of Daraga and the Rococo-

Figure 2 (a) : Mayon and the agricultural landscape around it. (Source: Trina Halili, “MOUNT MAYON,” retrieved from
https://app.emaze.com/@AWLWQOIF#1)

Figure 2 (b) : The ruins of Cagsawa Church, which was destroyed in 1814 by Mayon’s most destructive eruption to date.
(Source : Photo by the author)

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style Tabaco Church, both of which are considered since 2016. Finally, as the most active volcano in the
National Cultural Treasures. Conversely, Mayon has Philippines, Mayon is monitored by a vast network
likewise brought destruction and the loss of life, of sensors and field offices managed by PHIVOLCS;
most famously in 1814 when the town of Cagsawa the agency works hand-in-hand with the Albay
was buried by pyroclastic surges and lahar, killing Public Safety and Emergency Management Office
1,200 people [Fig. 2 (b)]. Traces of the volcano’s (APSEMO) whenever the volcano erupts.
destructive past can also be seen in the gullies and
pyroclastic deposits near some municipalities, such Part of the ongoing efforts to protect the
as Sto. Domingo and Malilipot, with some deposits site is the current World Heritage nomination
being in remarkable condition, showing very distinct process, which began when the Province of Albay
layering (Newhall 2018). and the Park Management of MMNP initially
voiced their interest, leading to the site being
Despite these constant risks, communities placed on the Tentative List last 2015, under
have in fact thrived for centuries and have learned provisional criteria (vii), (viii), and (x). When the
to adapt to the drastic changes brought about by province formally signified their desire to work on
the volcano and its effects. These resiliency values a World Heritage nomination last 2017, after the
are represented in the informal and institutional designation of the province as a Biosphere Reserve,
efforts through which these communities respond the National Government, through the Philippine
to the volcano’s activity. Indigenous methods of National Commission for UNESCO, has committed
disaster response have been documented, as well as to supporting the site through technical and expert-
early warning measures, in the form of folktales and level support and assistance.
kwentong bayan (community stories) which have
helped save lives during Mayon’s previous eruptions Since then, the nomination process has
(Cerdena 2008). One such kwentong bayan is the evolved, expanding into the cultural values that
ominous appearance of an old lady asking for water animate the landscape. Currently, the National
before an eruption, which can be explained as the Commission for Culture and the Arts (NCCA) is in the
community’s experience of nearby water sources process of conducting a comprehensive heritage
drying up prior to an eruption sequence. This, along mapping activity surrounding the circumferential
with other narratives, has provided communities base of the volcano, in order to identify and
with the requisite cultural resources to have been validate the different natural and cultural elements
able to adopt a culture of resilience, but also to related to the volcanic landscape. The results
adapt easily to modern and comprehensive disaster of this mapping activity will be used not only in
risk mitigation plans as well as extensive and state the nomination dossier but also to identify the
of the art volcanic monitoring systems. appropriate actions needed to protect these linked
values between culture and nature, such as more
■■3. Current management arrangements comprehensive geotourism facilities and training for
guides and operators on narrativizing the volcano’s
The site is protected by National Legislation as a geological heritage and its resulting cultural values.
Natural Park by virtue of the National Integrated Further, in order to protect the visual integrity of
Protected Areas Systems (NIPAS) Act of 1992. the volcano across its 360-degree visual easement,
A Natural Park, according to the NIPAS Law, is a there are ongoing negotiations to establish clear
protected area having no material alteration from infrastructure guidelines and building height
human activity and where extensive extractive regulations. As these are being completed under
practices are not allowed so as to maintain the the general framework of the World Heritage, it is
scenic, scientific, and educational significance of the then essential to adopt an overall people-centered
site. In this regard, “Natural Park” corresponds to approach in the values protection scheme for
Category III under IUCN’s classification for Protected the site. This will hopefully include institutional
Areas. Selected tangible cultural heritage sites arrangements to empower local communities, in
around the volcano are also protected through the form of local heritage councils, and coordination
the National Heritage Act of 2009 as National with the DENR regarding the expanded citizen
Cultural Treasures, which includes Tabaco Church, deputation of Bantay Gubat (Forest Rangers) in
the ruins of Cagsawa Church, and Daraga Church, order to enforce current Protected Area rules and
which was built with volcanic material from Mayon. regulations as well as monitor the local biodiversity
Additionally, the Natural Park is itself a component around the volcano.
of the Albay Biosphere Reserve, which has been
part of the UNESCO Man and Biosphere Network In terms of disaster preparedness, the whole

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province successfully completed its Albay Disaster 1,266 fatalities caused by the typhoon (Paguican et
Risk Reduction Management Plan in 2009 and al. 2009) [Fig. 3 (a) (b)]. While multi-hazard events
has implemented it quite a number of times since have historically occurred with relative frequency,
then, not only because of Mayon’s volcanic activity the sheer scale and volume of the 2006 event was
but more frequently because of the passage of enough to overwhelm the existing systems of dikes
typhoons. For this reason, the province has been and sabo dams, which were designed to mitigate
cited as having one of the most comprehensive and mud and lahar flows on a smaller scale, resulting
forward-looking disaster management plans in the in a complete failure of the conventional means of
country. disaster mitigation (Pierson et al. 2014).

■■4. Current State of Conservation and Challenges Since then, Albay has learned from their
for Continuity lessons and was able to incorporate a multi-hazard
approach to their disaster preparedness schemes,
The hazards that communities face within the site culminating in the 2009 Disaster Risk Reduction
are multi-dimensional in nature. The combination Management Plan. The plan has proved invaluable
of the volcano’s constant activity, the resulting in enabling local authorities to act in an orderly
topography from its geologic history, its location fashion in times of calamity, as well as strengthening
in the Pacific typhoon belt, and the proximity of inter-agency communication and cooperation.
human communities and settlements around the This was seen, for example, during Mayon’s 2009
volcano increase their risk factors (Albay DRRM and 2018 eruptions, where evacuations and relief
2009). These converged back in November 2006, operations were instrumental in ensuring a zero-
when Typhoon Reming/Durian inundated the casualty outcome for the province, which has
region with almost 466mm worth of rain, falling become the gold standard not only for Albay but for
in a 9-hour window (Orense and Ikeda 2007). The the whole country (Salceda 2013).
slopes of Mayon had just been resupplied by fresh
volcanic material following its most recent activity, There were still gaps in the overall
4 months prior. This resulted in unusually large management regime of the site in terms of overall
lahar flows which descended down Mayon’s lower disaster preparation and risk mitigation in the
gullies, into river channels, basins, and finally into years following the disaster (Scott 2010), though
communities, resulting in 8 barangays being buried these have been addressed over time, specifically
and causing 665 deaths, more than half of the total regarding the construction of hard infrastructure

Figure 3 (a) : Flood and lahar damage from the 2006 disaster showing the hardest-hit areas of Lidong, Padang,
Guinobatan, Daraga, and Pawa. (Source : UNOSAT 2006)

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Figure 3 (b) : Houses covered in lahar in Budiao, Daraga, Albay. (Source: www.geoview.info)

to re-channel future lahar flows. Despite this, the also provides the requisite value system for people
previous disaster also exposed the need to mobilize to appreciate their connection to the natural
communities further in utilizing the linked heritage environment. That these values, at present, exist
values between nature and culture to mitigate the only as oral traditions and implicit in community life
effects of disasters. The 2006 event can thus point but are not fully documented and mapped poses a
us to a number of key issues that affect the site, not serious challenge to the protection of these values,
only from a disaster mitigation perspective but also as well as the lack of institutions that can transmit
from a heritage conservation standpoint. these values to the greater public.

First, it has been noted that one of the ■■5. Recommendations

decisive factors which magnified the effects of
the 2006 disaster was the complete failure of The site is currently in the process of completing
communication between the communities and its nomination dossier to be submitted for
local authorities (Orense and Ikeda 2007). Once the consideration by the World Heritage Committee.
typhoon cut communication lines, communities Concurrently, efforts are being made to expedite
were left isolated and were not able to cope the comprehensive identification of natural and
with the speed of the lahars. Since the disaster, cultural heritage values so that protective measures
local authorities have held community-based risk are put up once the mapping activities around the
mapping workshops to capacitate locals with the volcano are accomplished. Through the ongoing
ability to act on their own whenever large-scale nomination efforts, continued engagement in the
disasters occur again. Apart from this, however, World Heritage nomination process will capacitate
little has been done to capacitate community local authorities with the ability to adopt a people-
resilience values from a multi-hazard perspective centered framework that incorporates both
incorporating heritage values. natural and cultural values protection and their
interlinkages. This can be achieved by identifying
Second is the basic lack of identification spaces and institutions where these values are
and appreciation of the linkages between natural being nurtured and transmitted, including more
and cultural heritage values, which results from the community-based approaches on disaster risk
lack of any holistic institutional arrangement for management or affording protection and promotion
the community to connect with these values. This of local intangible heritage elements associated with
is a fundamental issue that needs to be addressed the experience of the community with the volcano.
because community values around volcanoes, in
general, form the bedrock, not only for community On a smaller scale, ways of connecting with
cohesiveness and resilience (Kitagawa 2018) but the site’s heritage values through conventional

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and non-conventional means should be studied especially with regard to sites of memory around
for eventual implementation. For instance, the volcano.
interpretation facilities for Mayon’s geological
heritage can be set up akin to those in Mt. St. These recommendations, while provisional,
Helens, which was able to take advantage of the are fundamental in terms of providing avenues and
1980 eruption and build a comprehensive museum media for community values to be fostered and
showcasing the important values related to the integrated into a DRM approach as well as in the
volcano (Newhall 2018). Other measures include World Heritage nomination process. By adopting
the identification of significant deposits which can a people-centered approach and focusing on
be utilized for geological tourism activities, with the heritage links between nature and culture,
comprehensive training for guides and operators the site could embody the values of adaptation
to narrate Mayon’s heritage from the point of view and resilience, which would become an example
of geological science, and from the community’s in the World Heritage context and contribute to
perspective through stories about those historical the development of comprehensive and inclusive
eruptions. measures for disaster preparedness and risk
reduction in multi-hazard sites similar to Mayon.
Finally, sites of memory such as the Cagsawa
ruins from the 1814 eruption [Fig. 2 above] and
the Padang memorial cross from the 2006 disaster
[Fig. 4], could be rehabilitated and improved with
interpretation facilities, promoting the protection
and maintenance of practices and intangible
elements centered on commemorating the
community’s experiences of the volcano’s eruptions.
Memorialization practices and sites serve as identity
markers and help foster a sense of community
belongingness and provides opportunities to
showcase the communities’ experiences of living
in a multi-hazard context (Preston et al. 2015). It is
hoped that the findings of the ongoing mapping
exercise, done by the NCCA, will also lead to the
improvement of heritage protection schemes,

Figure 4: Padang memorial cross. (Source: Brahmin Reyes, “Beauty and madness” 2012, retrieved from https://
brahmineyes.wordpress.com/?s=padang)

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