Republic of the Philippines
DR. EMILIO B. ESPINOSA, SR. MEMORIAL STATE COLLEGE
OF AGRICULTURE AND TECHNOLOGY
(Masbate State College)
http://www.debesmscat.edu.ph
Mandaon, Masbate
GRADUATE SCHOOL
PA 205 – Budgetin
Reframing Hazard Governance in Albay:
Beyond Fencing Toward Integrated Urban–
Regional Planning for Mayon Eruption and
Lahar Risk
Submitted By:
Ma. KATHRINA CYRA G. RELLENO
Master in Public Administration
PA 214 – Urban & Regional Planning
February 14, 2026
Republic of the Philippines
DR. EMILIO B. ESPINOSA, SR. MEMORIAL STATE COLLEGE
OF AGRICULTURE AND TECHNOLOGY
(Masbate State College)
http://www.debesmscat.edu.ph
Mandaon, Masbate
GRADUATE SCHOOL
EXECUTIVE SUMMARY
The continuing unrest of Mayon Volcano, the construction of fencing within its 6-kilometer
Permanent Danger Zone (PDZ), and recurring lahar threats during heavy rainfall expose
structural weaknesses in hazard governance in Albay. While fencing represents a visible
enforcement mechanism, repeated evacuations and livelihood dependence inside high-risk
zones demonstrate that physical barriers alone cannot resolve long-term exposure.
This analysis posits that the Mayon volcano's situation exemplifies a deficiency in integrated
urban and regional planning, rather than a mere failure to adhere to regulations. Consequently,
it advocates for the creation of a Regional Mayon Hazard Governance Framework. This
framework should incorporate spatial planning, relocation policies, livelihood transition
strategies, lahar mitigation infrastructure, and multi-level coordination among provincial and
municipal
stakeholders.
POLICY PROBLEM / ISSUE
Even with hazard zones clearly marked around Mayon Volcano, people still live and work in
the Permanent Danger Zone. When the volcano becomes active, thousands are forced to leave
their homes. Intense rainstorms then trigger lahar flows, sending volcanic debris downriver and
endangering
barangays
and
critical
infrastructure.
The problem is rooted in where people are, how the government is organized, and the
economy's dependence on certain activities. Having grown up in Legazpi City, I saw firsthand
that simply enforcing rules, without addressing the underlying issues, isn't enough to build
Republic of the Philippines
DR. EMILIO B. ESPINOSA, SR. MEMORIAL STATE COLLEGE
OF AGRICULTURE AND TECHNOLOGY
(Masbate State College)
http://www.debesmscat.edu.ph
Mandaon, Masbate
GRADUATE SCHOOL
lasting resilience. Consequences include fiscal burdens, infrastructure damage, and spatial
inequality.
BACKGROUND AND CONTEXT
Mayon Volcano, a highly active geological feature, is situated in the Philippines. The
established Permanent Danger Zone (PDZ) serves to limit habitation in areas susceptible to
lava flows and pyroclastic material. Nevertheless, the pressures of urbanization, coupled with
a shortage of available land, exacerbate the prevalence of informal settlements on less stable
terrain.
Urban systems theory highlights the complex interconnections within socio-economic
structures; therefore, sound risk governance requires interventions that extend beyond the
boundaries of individual cities. Moreover, the escalating frequency and severity of rainfall, a
consequence of climate change, heightens the likelihood of lahar flows, thus exacerbating preexisting vulnerabilities.
POLICY OBJECTIVES
1. Reduce long-term human exposure within the PDZ.
2. Integrate lahar risk into municipal CLUPs.
3. Strengthen intergovernmental coordination.
4. Provide sustainable livelihood alternatives.
5. Transition from reactive evacuation to preventive governance.
Republic of the Philippines
DR. EMILIO B. ESPINOSA, SR. MEMORIAL STATE COLLEGE
OF AGRICULTURE AND TECHNOLOGY
(Masbate State College)
http://www.debesmscat.edu.ph
Mandaon, Masbate
GRADUATE SCHOOL
POLICY OPTIONS
Option 1: Maintain fencing and reactive evacuations.
Option 2: Incremental relocation and monitoring reforms.
Option 3: Establish a Transformative Regional Hazard Governance Framework integrating
mapping, relocation, livelihood transition, tourism zoning, and sediment management
infrastructure.
ANALYSIS OF POLICY OPTIONS
Option 3 is most effective, equitable, and sustainable. While requiring initial investment and
coordination, it reduces long-term evacuation costs and strengthens institutional governance
consistent with contemporary planning frameworks.
RECOMMENDED POLICY OPTION
Adopt Option 3. Expected outcomes include reduced PDZ occupancy, lower evacuation
frequency, improved public trust, and integrated lahar risk planning. Risks such as political
resistance and funding constraints may be mitigated through phased implementation and
stakeholder engagement.
IMPLEMENTATION CONSIDERATIONS
Phase 1 (0–6 months): Establish governance council and harmonize hazard maps.
Phase 2 (6–18 months): Pilot relocation and livelihood programs.
Phase 3 (18–36 months): Integrate framework into CLUP revisions.
Republic of the Philippines
DR. EMILIO B. ESPINOSA, SR. MEMORIAL STATE COLLEGE
OF AGRICULTURE AND TECHNOLOGY
(Masbate State College)
http://www.debesmscat.edu.ph
Mandaon, Masbate
GRADUATE SCHOOL
Stakeholders include provincial and municipal governments, PHIVOLCS, DENR, DILG,
housing agencies, and affected communities.
MONITORING AND EVALUATION
Key indicators include reduction of households within PDZ, evacuation frequency,
infrastructure damage costs, income post-relocation, and hazard integration in CLUPs. Data
sources include LGU planning offices, PHIVOLCS bulletins, civil registry data, and DRRM
reports.
CONCLUSION
The Mayon fencing debate demonstrates that disaster governance cannot rely solely on
physical barriers. Integrated urban and regional planning grounded in coordination and spatial
equity is necessary for sustainable resilience in Albay.
REFERENCES
DILG. (2021). Guidelines on local disaster risk reduction and management planning.
Healey, P. (2006). Collaborative planning: Shaping places in fragmented societies.
PHIVOLCS. (2023). Mayon Volcano bulletin and hazard advisories.
Republic Act No. 10121 (2010). Philippine Disaster Risk Reduction and Management Act.
UN-Habitat. (2020). World Cities Report 2020.
Province of Albay. (2023). Provincial disaster risk reduction reports.
National Economic and Development Authority. (2017). Philippine Development Plan 2017–
2022.