Although the Philippine Atmospheric, Geophysical and Astronomical Services Administration (PAGASA) did not recommend their delay, both the 2006 ASEAN and East Asia summits in Cebu City were postponed due to the threat of Utor impacting the city; officials denied allegations that the postponements were instead due to a possible terrorist attack. This was the first time than an ASEAN summit had been postponed due to inclement weather. Potentially hazardous conditions also delayed humanitarian aid to victims of Typhoon Durian, which struck the Philippines in late November. The first Public Storm Warning Signals for the Philippines were issued by the PAGASA on December 8 for several islands in the central Philippines. The third level of the four-tier warning system was issued for Samar, Leyte, and Biliran. With landfall imminent on December 9, 15,000 people were evacuated to temporary evacuation shelters from around 12 villages. This figure increased to 59,000 people as landfall occurred and later to 91,121 with the storm passing over the Philippines. Most of the evacuees were from Albay due to fears of deadly mudslides and lahars associated with Mount Mayon as witnessed during Typhoon Durian. In addition, the Philippines Office of Civil Defense considered relocating Typhoon Durian refugees in the Bicol Region to special "holding areas". Other domestic flights were also cancelled.