Magna Carta of Commuters

:: Senate Difice of the see riary TWENTIETH CONGRESS OF THE REPUBLIC OF THE PHILIPPINES 25 AUG -7 P6:13 First Regular Session RECEIVED BY: SENATE Senate Bill No. _ 1154 Introduced by Senator JOEL VILLANUEVA AN ACT PROVIDING FOR A MAGNA CARTA OF COMMUTERS EXPLANATORY NOTE Mobility, or the ability to move from place to place, is a fundamental human need. It provides access to essential services such as food, water, healthcare, education, and employment. When mobility is limited, people are denied not only these necessities but also broader opportunities for social, economic, and personal development. This is especially true for vulnerable groups, including the elderly, children, women, persons with disabilities, and the working class. Unfortunately, millions of Filipinos continue to suffer from inadequate mobility options. Public transportation remains insufficient, inefficient, and often unsafe. Although the majority of daily trips, or around 69%, are made using public transport, only 22% of road space is allocated to them, while private vehicles, which account for just 31% of trips, occupy the remaining 78%. This imbalance marginalizes commuters and fails to reflect the reality of how Filipinos travel. The increase in private vehicles on the road has also worsened traffic congestion, the consequences of which are severe. According to the Japan International Cooperation Agency (JICA), in Metro Manila, daily road congestion costs the economy at least P3.5 billion daily. This is expected to increase to P5.4 billion per day by 2035 if no action is done.? In 2024, Metro Manila commuters have also lost approximately 1 JICA and NEDA. Roadmap for Transport Infrastructure Development for Metro Manila and Its Surrounding Areas (Region III & Region IV-A). Available at https://openjicareport.jica.go.jp/pdf/12149597.pdf (Accessed on 03 July 2025). 2 JICA. JICA and DOTr to improve service quality of PUVs towards road decongestion in Mega Manila. 17 July 2024. Available at https://www.jica.go.jp/english/overseas/philippine/information/press/2024/1545461_53492.html (Accessed on 03 July 2025).

103 hours due to rush hour traffic. Meanwhile, road infrastructure rarely considers the needs of pedestrians, cyclists, or persons with disabilities, further limiting accessible travel. Safety is another pressing issue. According to the United Nations, more than 32 people die each day in the Philippines due to road crashes. Drivers of public utility vehicles are forced to compete for passengers under the boundary or commission- based system, encouraging reckless behavior. Further adding to these concerns is the worsening air quality suffered by Filipinos. Studies have found that in 2019, air pollution was responsible for more than 66,000 deaths in the country. 5 Hence, this bill seeks to address these longstanding mobility issues through a shift in national policy. It proposes prioritizing public and active transportation, such as walking and cycling, in the allocation of road space. It calls for infrastructure development that maximizes the use of limited public space through high-occupancy and space-efficient transport systems. It also aims to end unsafe practices in public transport operations and to recognize the rights of commuters to accessible, reliable, convenient, affordable, and dignified transport. Ultimately, this bill envisions a transportation system that promotes economic growth, environmental sustainability, and inclusive development where mobility is not a privilege, but a guaranteed right for all. In view of the foregoing, the immediate passage of this bill is earnestly sought. se MANUMA TomTom Traffic Index 2024. Available at https://www.tomtom.com/traffic-index/ranking/ (Accessed on 03 July + UN Philippines. The UN Special Envoy for Road Safety calls for law enforcement and promotion of gestures that save lives in the Philippines. 13 April 2023. Available at https://philippines.un.org/en/227552-un-special-envoy- road-safety-calls-law-enforcement-and-promotion-gestures-save-lives (Accessed on 03 July 2025). CREA. Estimating the Health & Economic Cost of Air Pollution in the Philippines. 06 February 2023. Available at https://energyandcleanair.org/publication/cost-of-air-pollution-in-the-philippines/ (Accessed on 03 July 2025).

Senate Office of tie Sitietary TWENTIETH CONGRESS OF THE REPUBLIC OF THE PHILIPPINES AU6 -7 P6:13 First Regular Session ) RECEIVED BY: SENATE 1154 Senate Bill No. _ Introduced by Senator JOEL VILLANUEVA AN ACT PROVIDING FOR A MAGNA CARTA OF COMMUTERS Be it enacted by the Senate and House of Representatives of the Philippines in Congress assembled:

SECTION 1. Short Title. - This Act shall be known as the "Magna Carta of

Commuters."

SEC. 2. Declaration of Policy. - The State hereby recognizes mobility as a

basic human need. Without mobility, citizens are unable to access basic services, such as healthcare and education, or enjoy fundamental freedoms. Thus, the State shall 6 ensure that mobility is enjoyed by people of all ages, abilities, and economic status, 7 and not only by those who are physically fit, with private motor vehicles, or with 8 financial means. The State further recognizes the right of the commuters to travel safely, conveniently, and reliably. To this end, the State shall develop and establish mobility infrastructures and transportation services aimed at promoting the welfare of commuters and improving their mobility. The welfare of commuters shall also be the paramount objective in all decisions related to the provision of mobility infrastructures and transportation services. The State further guarantees the rights of all citizens, including the commuter sector, to participate in the policy formulation, planning, implementation,

1 management, monitoring, evaluation, and decision-making processes involving all programs, projects, and services affecting the rights and welfare of commuters. To attain the foregoing policy, the State shall provide the necessary mechanisms, human and financial resources, and legal measures to enable its citizens to fully enjoy the rights embodied in this Act.

SEC. 3. Definition of Terms. - For purposes of this Act, the following terms

7 shall mean: a) Active Transport refers to non-motorized means of travel, including walking or using a bicycle; 10 b) Activity Center refers to a place in a city or municipality where people gather regularly for work, worship, education, social events, trade, exercise, leisure, or other common interests and purposes; Advance Notice refers to the provision of early information regarding any consultation with stakeholders, for which the period from the announcement or delivery of the invitation to the consultation event will be a minimum of ten (10) working days; d) Commuter refers to a person who needs to travel from one place to another, often using a combination of transportation modes to get to his/her destination; e) Greenway refers to a road, street, or path with ample greenery and shade where motorized transport is not allowed, and that also serves as recreational space or a public park in order to welcome and encourage environmentally sustainable transportation modes, especially walking and cycling; f) High-Volume Transport Corridor refers to walkways, paths, roads, bridges, streets, or mass transportation terminals where the flow of people is at least two thousand (2,000) persons per hour per direction during peak travel periods; g) Micromobility refers to travel using electronic or non-motorized vehicles weighing not more than one hundred (100) kilograms; h) Mobility refers to the ability of a person to travel from one place to another to conduct daily and extraordinary activities and business; i) Mobility Infrastructure refers to physical facilities, such as footpaths, bicycle lanes, roads, public utility vehicle (PUV) loading and unloading bays, PUV terminals, and public transport systems that support and enhance a person's

mobility; Private Motorized Transport refers to privately-owned motorized vehicles weighing more than one hundred (100) kilograms; k) Public Transport refers to public sector and franchised private sector services that transport people over land or water, such as jeepneys, utility vehicles (UVs), buses, minibuses, trains, ferries, taxis and tricycles; and Urbanized Municipality refers to a municipality in the Philippines where the aggregate area in the municipality zoned as residential, commercial, or industrial exceeds forty percent (40%) of the total land area of the municipality.

SEC 4. Right to Public Transportation Services that Satisfy Commuters'

Mobility Requirements. - The State shall ensure that adequate public transportation services are available to meet the needs of its citizens in the most prompt, convenient, and accessible manner possible. The State shall ensure that: a) Every town and municipality will have a community-wide network of safe sidewalks, bicycle lanes, and roads to enable safe and convenient travel around the city entirely by foot, bicycle, or by other forms of light mobility; 18 b Public transport services are available within a five hundred (500)-meter walk from any residence or activity center in a city; 20 c) Public transport services are connected to another public service within a three hundred (300)-meter walk; d) Public transport services are in sufficient quantity and frequency so that commuter waiting time at stops and terminals does not exceed ten (10) minutes during peak demand periods; e) Public transport is accorded priority in the use of road space and traffic signal operation so that it is able to traverse fifteen (15) kilometers within one (1) hour, including all scheduled stops; f) Public transport services are supported by properly-equipped, adequately-sized, and well-maintained terminals and stops, with attention to the safety and comfort of commuters; g) Every road with a speed limit of over twenty (20) kilometers per hour (kph) and

under sixty (60) kph shall feature dedicated pedestrian infrastructure, in the form of an unobstructed walking path of at least two-point-five (2.5) meters wide in each direction; h) Every road with a speed limit of under sixty (60) kph shall feature dedicated bike lanes which are wide enough to comfortably accommodate at least two (2) bikes side by side; i) Transport services are inclusive, so that they are conveniently accessible to persons of all ages and abilities. Public transport infrastructure and vehicles shall be designed and implemented so that persons with disabilities or special needs, including senior citizens, are not excluded from their use; and In all renovations of existing infrastructure or construction of new infrastructure, preserving or improving the travel time impact on public transport, bicycles, and pedestrians shall be prioritized over preserving or improving travel time impact on private motorized transport. The State shall generally avoid the implementation of projects that produce a positive impact on the travel time of users of private motorized transport at the expense of public transport, bicycles, and pedestrians.

SEC. 5. Right to Safe, Convenient, and Affordable Public Transport

Services. - The State shall ensure that public transport services are safe, dignified, convenient, comfortable, easily accessible, and reliable, while remaining affordable to the general public. Concessional or discounted fares shall be offered to disadvantaged or special groups, such as students, senior citizens, and persons with disabilities, in accordance with law. The State shall endeavor to provide subsidies or incentives to compensate for discounts offered to special or disadvantaged groups other than the incentives provided under existing laws. The State shall ensure that it is more economical for commuters to use public transport and promote its frequent use through financial and non-financial incentives. During periods when transportation services are deficient, the State shall employ alternative approaches to enable additional mobility options for its citizens, including the use of public resources to fill temporary gaps in services, such as government- owned vehicles or through government charter or lease of private vehicles.

The State shall also promote and ensure safe and efficient driving behavior by 2 public transport drivers through mandatory trainings and more stringent licensing. Streets shall also be designed in accordance with international best practices in road safety design to reduce the occurrence of dangerous driving behavior.

SEC. 6. Right to Infrastructure of Pedestrians, Cyclists, and Persons

6 with Disabilities. - The State shall ensure that roads are accessible to persons with 7 impaired mobility, among others, and that adequate and appropriate bicycle lanes are available. For this purpose, the State shall: 9 a) Accord priority to the development of adequate sidewalks and networks of bicycle lanes that encourage active transport, and provide safe and direct access to priority destinations and services, such as housing, education, business centers, markets and grocery stores, and public transport; b) Ensure that all public transport stops are accessible to persons with disabilities and impaired movement, including senior citizens; C) Prioritize ease of access by pedestrians, especially at public transport stops and government facilities, over mobility of private motorized transport; d) Ensure that safe and adequate walking and cycling infrastructure is incorporated in the design and implementation of road transport projects at national and local government levels; e) Ensure that the comprehensive land use plan of every city includes the development of a city-wide network of safe sidewalks, bicycle lanes, and road lanes to enable travel around the city entirely by foot, bicycle, or by other forms of light mobility; and f) Ensure that travel by walking or cycling is not less direct to destinations than travel by private motorized transport. No commuter shall be made to travel above or below street level to cross any street or intersection if it is possible to implement an at-grade crossing. No commuter, when traveling by walking or cycling, shall be made to diverge from his or her route of travel if a commuter traveling by private motorized transport would have enjoyed a more direct trip. In cities and urbanized municipalities, the State shall ensure that the infrastructure of each barangay includes:

1 a) Safe footpaths or sidewalks, free of obstructions, well-protected from automobiles, compliant with universal design guidelines, and friendly and accessible to pregnant women, elderly, and persons with strollers or wheelchairs; 4 b) Networks of greenways to encourage active transport modes; 5 c Proper lighting on all roads and footpaths to allow safe travel even after dark; 6 d) Tactile paving on sidewalks of high-volume transport corridors for the benefit of pedestrians who are blind; e) Bicycle racks in every transportation hub or terminal and in every commercial, community, and activity center. Such racks shall be provided at street level, if possible, and at most, one level above or below the street; and f) Safe intersections and pedestrian crossings including the provision of raised pedestrian platforms, highly visible advance warning signages, adequate street lighting, mid-block crossing refuges, traffic calming for motorized vehicles, and curb extensions. In addition, the State shall promote light mobility by requiring that buildings have adequate bicycle racks that can accommodate ten percent (10%) of the anticipated users of such building.

SEC. 7. Right to a Fair Share of Public Road Space. - The State shall ensure

that public road space is used in a manner that delivers the greatest socioeconomic benefit. The State shall also ensure and prioritize the safety of road users. For this purpose, it shall ensure that the design, engineering, and operation of road infrastructure are appropriate to achieve the goal of road safety and access for non- motorized and vulnerable users. Because roads are a scarce public asset, the State shall ensure that road space is prioritized for modes of travel that move more people and maximize the productivity and social benefit of the public asset. The planning and design of roads must prioritize the needs of pedestrians, micromobility users, and public transport users. Public transport shall also have priority use of road space over private motorized transport. The State shall ensure that there is no private appropriation of public road space and footpaths for parking, commerce, or other activities that will restrict public use of, or access to, the road.

SEC. 8. Right to Breathe Clean Air during Travel. - The State shall take

1 measures to ensure that commuters are able to travel using public transport or active 2 transport without compromising their health. The State shall ensure that all public transport vehicles comply with the emission 4 standards set by the Department of Environment and Natural Resources (DENR), 5 Department of Trade and Industry (DTI), and/or the Land Transportation Franchising 6 and Regulatory Board (LTFRB). The State shall also formulate and implement programs and policies aimed at 8 encouraging citizens to commute using cycling or other lighter vehicles, thus reducing 9 vehicle-related pollution emissions. The State shall provide facilities and programs 10 which support and incentivize the use of cleaner alternative fuels, other types of 11 renewable energy, and electric vehicles. The State shall measure air quality along major transport corridors in all cities and provide this information to the public in real time. When air quality exceeds safe levels according to internationally accepted standards, particularly those set by the World Health Organization, the State shall activate emergency procedures with a view to reducing the exposure of the public, especially the young and the elderly, to unclean air.

SEC. 9. Right to Information for Efficient and Convenient Travel. - The

State shall provide timely and adequate information so that commuters are able to make good travel plans and choices about modes and routes. For this purpose, the State shall: a) Make publicly available information on all public transport services, including route maps, fares, schedules, real time vehicle location and availability, and traffic situation, for the convenience of commuters; b) Ensure that such information is prominently displayed at all stops of public transport services and at other locations deemed necessary or beneficial to commuters; C) Establish technical standards and regulations for the display of street maps at strategic locations in each neighborhood, for the reference of residents and visitors; and d) Ensure that at all ports, airports, and terminals, a twenty-four (24)-hour information and assistance counter will be available to serve the needs of

travelers.

SEC. 10. Right to Special Attention during Service Breakdowns and to

Compensation for Deficiencies in Service. - In the event of a breakdown in public transport service, passengers shall be entitled to receive promptly and without delay, from the transport operator, a full refund of the fare and assistance in securing onward 6 journeys. Stranded passengers shall be informed in a timely manner about how they will be redirected to their destination. If onward journeys are unavailable or unreasonably 9 delayed for more than twelve (12) hours, the transport operator shall provide its passengers food, water, and waiting area with clean restrooms and ventilation.

SEC. 11. Right to Representation and Participation. - The State shall

ensure that the welfare and interest of commuters are considered in all decision- making related to mobility and transportation services. Commuters shall be adequately consulted on all matters affecting their welfare and mobility.

SEC. 12. Annual Public Transportation Services and Infrastructure

Plans and Programs. - The Department of Transportation (DOTr), in coordination with local government units and other concerned stakeholders, shall prepare annually a national public transportation services and infrastructure plan and program to satisfy the evolving mobility requirements in the country, especially in urban areas. Local government units shall also prepare their own local public transportation services and infrastructure plan to ensure the mobility of their citizens within the context of their situation, needs, and stages of development. Metropolitan authorities and local government units shall also be responsible for measuring, analyzing, and updating the mobility requirements in each locality and for developing plans and programs to address the mobility requirements of their constituents.

SEC. 13. Vision Zero in Road Safety, - The State shall adopt the Vision Zero

in road safety, which aims to achieve a highway system with no fatalities or serious injuries involving road traffic. For this purpose, the State shall implement a comprehensive road safety program and allocate funding to implement activities under the five pillars of the Philippine Road Safety Action Plan, namely, Road Safety

1 Management, Safer Roads, Safer Vehicles, Safer Road Users, and Post-Crash 2 Response.

SEC. 14. Implementing Agencies. - The DOTr, DENR, DTI, Department of

Public Works and Highways (DPWH), Department of the Interior and Local 5 Government (DILG), Metropolitan Manila Development Authority (MMDA), and other 6 metropolitan councils, shall be the implementing agencies of this Act, with DOTr as the 7 lead implementing agency with responsibility to coordinate and monitor all 8 implementation activities. The foregoing agencies shall include in their respective budgets funds for the 10 effective implementation of this Act. Within two (2) years from the effectivity of this Act, all concerned government agencies, including local government units, shall ensure that relevant technical standards, guidelines, and manuals are amended to incorporate the requirements of this Act.

SEC. 15. Penal Provisions. - Any person in violation of any of the provisions

of this Act shall be fined not less than Ten Thousand Pesos (P10,000.00) but not more than Five Hundred Thousand Pesos (P500,000.00). If the offender is a public official, he/she shall be dismissed from government service, after due process, and suffer the penalty of perpetual disqualification from holding public office.

SEC. 16. Implementing Rules and Regulations. - Within one hundred and

eighty (180) days from the effectivity of this Act, the DOTr and the other implementing agencies shall, in consultation with relevant government agencies and other stakeholders, promulgate the implementing rules and regulations (IRR) for the effective implementation of this Act. Failure of the relevant government agencies to promulgate the IRR within the specified period shall subject the heads of these government agencies to administrative penalties under applicable civil service laws. Should the IRR contain provisions that are contrary to this Act, the heads of the government agencies responsible for such provision, when done in bad faith or with gross negligence, shall be held administratively liable.

SEC. 17. Separability Clause. - If any portion or provision of this Act is

2 declared unconstitutional, the remainder hereof or any provisions not affected thereby shall remain in force and effect.

SEC. 18. Repealing Clause, - Any law, presidential decree or issuance,

executive order, letter of instruction, rule, or regulation inconsistent with the provisions of this Act is hereby repealed or modified accordingly.

SEC. 19. Effectivity. - This Act shall take effect fifteen (15) days after its

complete publication in the Official Gazette or in a newspaper of general circulation. Approved,