The Dignity in Commuting Act

TWENTIETH CONGRESS OF THE ) First Regular Session 25 JJL -9 P2:52 SENATE S. No. 290 Introduced by Senator FRANCIS N. PANGILINAN AN ACT PROVIDING FOR A MAGNA CARTA FOR DIGNIFIED COMMUTING, CREATING THE NATIONAL OFFICE OF COMMUTER AFFAIRS, APPROPRIATING FUNDS THEREFOR, AND FOR OTHER PURPOSES EXPLANATORY NOTE Mobility is a fundamental human right essential for accessing necessities like food, healthcare, education, and livelihood. However, Filipinos endure severe mobility issues, characterized by severe traffic congestion and inadequate, unsafe, and unaffordable public transport. The Japan International Cooperation Agency (JICA) projected in 2017 that economic losses due to traffic congestion in Metro Manila alone could reach Php5.4 billion daily by 2030 if no interventions are made, significantly higher than the Php3.5 billion estimated in 2017. A 2021 study by the Asian Development Bank (ADB) highlighted Metro Manila's public transport as "fragmented and inefficient." *Japan International Cooperation Agency (JICA), " JICA and MMDA commence a project on Intelligent Transportation System in line with the Comprehensive Traffic Management Pian for Metro Manila." Published on February 21, 2025. Available at https://www.jica.go.jp/english/overseas/philippine/information/press/2024/rdsigningctmp02212025.html#:~:text=Açcording% 20to%20a%20frequently%20cited,if%20no%20intervention%20was%20done. Accessed on July 5, 2025. 2 Asian Development Bank (ADB), "Philippines Transport Sector Assessment, Strategy, and Road Map." Published in October 2012. Available at https://www.adb.org/documents/philippines-transport-sector-assessment-strategy-and-road-map. Accessed on July 5, 2025.

Despite 70% of Metro Manila trips relying on public and active transport, these modes are allocated only 20% of road space3 , while private vehicles, making up 30% of trips, occupy the remaining 80%. This imbalance, coupled with lack of consideration for persons with disabilities, creates unsafe and inefficient urban environments. Road deaths in the Philippines are surging, with 13,125 fatalities in 2023, a decade high, and young adults aged 20-24 being the most affected. Metro Manila's major thoroughfares like EDSA (8,873 accidents in 2024) are hotspots. Over-all road related deaths rose 39% from 2011 to 2021, and crashes jumped 47% from 2021- 2023. Drivers are the primary victims, followed by pedestrians and passengers. In 2024, truck-to-motorcycle and hit pedestrian collisions were the deadliest accidents. Compounding these issues is deteriorating air quality. The World Health Organization (WHO) estimated in 2018 that outdoor air pollution caused 45.3 deaths per 100,000 individuals in the Philippines, 5 underscoring a severe public health crisis linked to vehicle emissions. This bill seeks to guarantee the right to safe, convenient, reliable, affordable, and dignified travel for all, especially those reliant on public and active transportation. By shifting towards a sustainable transportation policy, it aims to ensure equitable access, promote economic development, preserve the environment, and ultimately uplift the lives of Filipino commuters. In view of the foregoing, the immediate approval of this measure is earnestly sought. FRANCE PANELIMAN Senator 3 Regidor, J. F. & Javier, S. D. (2015). " The Philippines. A Study of Long-Term Transport Action Plan for ASEAN'. 4 Ibid. 5 Air Quality in Philippines, Available at https://www.iqair.com/philippines. Accessed on July 5, 2025.

TWENTIETH CONGRESS OF THE ) REPUBLIC OF THE PHILIPPINES First Regular Session 25 JL -9 P2:52 SENATE S. No. _ Introduced by Senator FRANCIS N. PANGILINAN AN ACT PROVIDING FOR A MAGNA CARTA FOR DIGNIFIED COMMUTING, CREATING THE NATIONAL OFFICE OF COMMUTER AFFAIRS, APPROPRIATING FUNDS THEREFOR, AND FOR OTHER PURPOSES Be it enacted by the Senate and the House of Representatives of the Philippines in Congress assembled: General Provisions

Section 1. Short Title. - This Act shall be known as "The Dignity in Commuting

4 Act."

Sec. 2. Declaration of Policy. - Recognizing that mobility is a fundamental

6 human need, it is hereby declared the policy of the State to guarantee and protect 7 the right of each person to travel safely, conveniently, reliably, affordably, and with 8 dignity. The State recognizes that mobility is indispensable for persons to enjoy 9 fundamental freedoms and access work opportunities and basic services, such as health and education. The State shall afford protection to commuters, and assure mobility of people of all ages, physical ability, gender, and economic status. The State shall protect the welfare of commuters at all times, especially in decisions related to the provision of mobility infrastructure and transportation services. II Definition of Terms

Sec. 3. Definition of Terms. - As used in this Act:

(a) Active Transport shall refer to non-motorized means of travel, including 2 walking or using a bicycle; 3 (D) Activity Center shall refer to an area in a city or municipality where people 4 gather regularly for work, worship, education, social events, trade, exercise, leisure, 5 or other similar activities; (c) Advance Notice shall refer to the provision of early information regarding 7 any consultation with stakeholders at least ten (10) working days prior to such 8 consultation; (d) Commuter shall refer to a person who needs to travel from one place to 10 another, often using a combination of transportation modes; (e) Greenway shall refer to a road, street, or path with ample greenery and 12 shade where private motorized transport is not allowed, that also serves as 13 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 shall refer to walkways, paths, roads, 16 bridges, streets, or mass transportation terminals where the flow of people is at 17 least 2,000 persons per hour per direction during peak travel periods; (g) Local Office shall refer to the Local Office of Commuter Affairs in each city or urbanized municipality; (h) Micro Mobility shall refer to travel using electronic or non-motorized vehicles 21 weighing not more than 100 kilograms; (i) Mobility shall refer to the ability of a person to travel from one place to another to conduct daily and extraordinary activities and business; (i) Mobility Infrastructure shall refer to physical facilities, such as foot paths, bicycle lanes, roads, public utility vehicle (PUV) loading/unloading bays, PUV terminals, and public transport systems, that support and enhance a person's mobility; (k) National Office shall refer to the National Office of Commuter Affairs; (l) Passenger shall refer to persons who avail public transportation services; (m) Private Motorized Transport shall refer to travel using motorized vehicies weighing more than 100 kilograms; (n) Public Transport shall refer to travel using public transportation services;

(0) Public Transportation Service Drivers shall refer to persons who operate 2 public transportation vehicles; (p) Public Transportation Services shall refer to public sector and franchised 4 private sector services that transport people over land or water, including jeepneys, 5 PUVs, buses, minibuses, railways, ferries, taxis, and tricycles; (q) Public Transportation Service Terminals shall refer to areas where 7 passengers (i) board and disembark public transportation vehicles, or (ii) purchase 8 tickets for public transportation services; (r) Public Transportation Service Vehicles shall refer to the vehicles used to 10 provide public transportation services to the public; (s) Transport Operators shall refer to persons or entities who provide public transportation services to the public; (t) Urbanized Municipality shall refer to a municipality in the Philippines where the aggregate area zoned as residential, commercial, or industrial exceeds forty percent (40%) of the total land area of the municipality; and (u) Vulnerable Road Users shall refer to students, senior citizens, and persons with disabilities. Office of Commuter Affairs

Sec. 4. National Office of Commuter Affairs. - To administer and implement the

provisions of this Act, and to monitor and ensure compliance of the country with international standards set for mobility, there is hereby created the National Office of 23 Commuter Affairs under the Department of Transportation (DOTr), which shall have 24 the following functions: (a) Coordinate with the respective government agencies dealing with road, rail, 26 air, and maritime transportation policy to ensure the safe, efficient, and comfortable 27 travel of commuters; (b) Operate help desks for commuters; (c) Assist commuters whenever the safety and efficiency of travel is 30 compromised; (d) Undertake massive information dissemination campaigns on commuter education;

(e) Ensure legal assistance for commuters, when necessary; and (t) Ensure adequate representation of commuters in any public consultation that will impact their welfare and interest. The National Office shall be under the direct supervision of an Assistant Secretary.

Sec. 5. Local Office of Commuter Affairs. - To administer and implement this

7 Act in the local level, each city and urbanized municipality shall establish its own 8 Local Office of Commuter Affairs, which shall be under the direct supervision of the 9 city or municipal administrator. IV Rights of Commuters

Sec. 6. Right to Adequate Public Transportation Services. - The State shall

ensure that adequate public transportation services are available to meet the needs of commuters. For purposes of this Act, public transportation services shall be considered adequate when: (a) Public transportation service vehicles are: i. sufficient in quantity and frequency, to ensure that commuter waiting time at stops and terminals does not exceed ten (10) minutes even during peak demand periods; ii. accorded priority in the use of road space and traffic signal operations, to ensure that commuters are able to traverse fifteen (15) kilometers within one (1) hour, including all scheduled stops; and iii. designed to accommodate all persons, including those with disabilities or special needs; (b) Public transportation service terminals and stops are: i.available within five hundred (500) meters from any residence or activity center; ii. connected to another public transportation service terminal within three hundred (300) meters to promote seamless connectivity of travel; and

iii. properly equipped, adequately sized, well maintained, and designed to promote commuter safety and comfort and accommodate all persons, including persons with disabilities or special needs.

Sec. 7. Right to Affordable Public Transportation Services. - The State shall

ensure that public transportation services are affordable to the general public. Vulnerable road users shall continue to benefit from concessional or discounted 7 fares, as provided for by law. The State shall promote the use of public transportation services by providing 9 financial and non-financial incentives to ensure that it is more economical for 10 commuters to use public transportation services more frequently than to use private 11 motorized transport.

Sec. 8. Right to Alternative Public Transportation Services. - When public

13 transportation services are deficient, the State shall provide alternatives to ensure the mobility of the people, including the use of public resources, such as government-owned vehicles, and through State charter or lease of private vehicles.

Sec. 9. Right to Road Safety. - The State shall ensure that road crashes are

17 eliminated. The DOTr, through the National Office, shall implement a comprehensive road safety program and shall implement the activities under the five 19 pillars of the Philippine Road Safety Action Plan, namely: Road Safety Management, 20 Safer Roads, Safer Vehicles, Safer Road Users, and Post-Crash Response. The State shall also promote safe and efficient driving behavior by public 22 transportation drivers through mandatory training programs and more stringent licensing. The National Office, in coordination with the Land Transportation Franchising and Regulatory Board (LTFRB), is hereby mandated to monitor the location and speed of public transportation vehicles, and the status of their public transportation drivers in real time, by requiring the installation of electronic vehicle 27 tracking devices and CCTVs. The State shall repeal all laws, rules, and regulations which incentivize public transportation drivers in relation to ridership or fare revenue, to eliminate dangerous on-street competition and behavior among public transport drivers.

Sec. 10. Right to Proper Mobility Infrastructure. - The State shall provide

32 proper mobility infrastructure to promote the welfare of commuters. In all

renovations of existing infrastructure or construction of new infrastructure, the 2 improvement of travel time impact on public transport service users, cyclists, and 3 pedestrians shall be prioritized. Road infrastructure shall be designed and engineered to ensure the safety and 5 access of non-motorized commuters, as well as the disadvantaged or vulnerable 6 groups. Every road where a speed limit of over 20 kilometers per hour (kph) and 7 under 60 kph is imposed shall feature an unobstructed walking path at least 2.5 8 meters wide in each direction. Every road where a speed limit of over 60 kph is 9 imposed shall feature dedicated bike lanes wide enough to accommodate at least 10 two bikes. The State shall develop adequate sidewalks and bicycle lane networks that 12 encourage active transport and provide safe and direct access to priority 13 destinations, such as housing, schools, business centers, and public transportation terminals. Such walking and cycling infrastructure shall be included in the Comprehensive Land Use Plan of every city and urbanized municipality incorporated in the design and implementation of road transport projects at national and local 17 government levels. The Local Office of a city or urbanized municipality shall ensure that each barangay includes: (a) safe, well-protected, and unobstructed community-wide foot paths, sidewalks, and bicycle lanes, compliant with universal design guidelines, to enable travel around the city or urbanized municipality entirely by foot, bicycle, or other 22 forms of micro mobility; (b) networks of greenways to promote healthy commuting and encourage active transport; (c) proper lighting on all roads and footpaths to allow safe travel even after dark; (d) tactile paving on sidewalks along high-volume transport corridors for the benefit of blind pedestrians; (e) bicycle racks in every public transportation terminal or stop and activity 30 center that can accommodate at least ten percent (10%) of its anticipated users; 31 and

(f) safe intersections and pedestrian crossings, equipped with raised pedestrian 2 platforms, highly visible advance warning signages, adequate street lighting, mid- 3 crossing refuges, traffic calming, and curb outstands to reduce road pavement crossing width. The State shall require all government offices and buildings to be equipped 6 with shower facilities for commuter use. The DOTr, through the National Office, and 7 the Local Offices shall develop and support measures to incentivize the private 8 sector to include shower facilities in their respective activity centers.

Sec. 11. Right to a Fair Share of Public Road Space. - The State shall ensure

10 that public road space is efficiently used. Modes of transportation that move more people, such as public transportation services, active transport, and micro mobility, 12 shall have priority over the use of road space. Public road space and foot paths shall not be appropriated or acquired for parking, commerce, or other activities which restrict public use of, or access to, public roads.

Sec. 12. Right to Breathe Clean Air During Travel. - In line with the provisions

17 of Republic Act No. 8749, otherwise known as the Philippine Clean Air Act of 1999, 18 the State shall take measures to ensure that commuters are able to travel using 19 public transportation services or active transport without compromising their health, 20 by: (a) strengthening enforcement measures for private motorized transportation 22 and public transportation vehicles to comply with the emission standards set by the 23 Department of Environment and Natural Resources and/or the LTFRB, whichever affords greater protection for clean air; (b) measuring air quality along the major transport corridors in all cities and provide this information to the public in real time; and (c) activating emergency procedures to reduce public exposure to emissions when air quality exceeds safe levels.

Sec. 13. Right to Information for Efficient and Convenient Travel. - The State

30 shall provide timely and adequate information to commuters to enable them to develop safe, convenient, and efficient travel plans, including selection of transportation modes and routes, by:

(a) requiring all public transport services to prominently display route maps, 2 fares, schedules, and real time vehicle location and availability, in all public 3 transportation service terminals and other strategic locations; (b) establishing technical standards and regulations for the display of street 5 maps at strategic locations in each neighborhood; (c) ensuring that all public transportation terminals, ports, and airports have a 7 twenty-four (24)-hour information assistance counter to serve commuter needs; and (d) ensuring the collection, processing, and availability to the public of data on 9 mobility, including geo-referenced data on road crashes, air pollution levels, public 10 transportation service travel times.

Sec. 14. Right to Compensation for Public Transportation Service Breakdowns.

12 - The State shall ensure that passengers are compensated in case of service 13 breakdowns in public transportation services. During public transportation service breakdowns, transport operators shall: (a) give passengers a full refund of the fare for the trip affected by the 16 breakdown; (b) assist the affected passengers in reaching their final destination; (c) inform passengers how they will be redirected to their final destination; and (d) provide food, water, ventilation, and access to waiting areas and bathrooms if the passengers are stranded for more than one (1) hour.

Sec. 15. Right to Participation in Decision-Making Processes Involving Mobility

22 and Public Transportation Services. - The State shall consult commuters and 23 consider their welfare and interest in all decision-making processes involving mobility and public transportation services by: (a) giving commuters, including civil society organizations, advance notice which 26 shall contain all relevant information on any proposed policy, regulation, project, or 27 service affecting mobility at the local or national level; (b) allowing commuters to comment and make suggestions on the proposed 29 policy, regulation, project, or service, through official traditional and social media 30 channels and other similar channels; (c) responding to comments and suggestions from commuters within twenty 32 (20) working days from receipt; and

(d) setting public consultation meetings at a time and place that will maximize 2 participation from commuters. V Public Transportation Services and Infrastructure Plan

Sec. 16. Public Transportation Services and Infrastructure Plan. - Within one-

6 hundred eighty (180) days from the effectivity of the rules and regulations 7 implementing this Act, in consultation with relevant government agencies, the 8 National Office and Local Offices shall publish a Public Transportation Services and 9 Infrastructure Plan, which should satisfy the evolving mobility requirements at the national and local levels, respectively. To ensure that these mobility requirements are kept up to date, the National and Local Offices shall publish an updated Public 12 Transportation Services and Infrastructure Plan on or before December of each year. The Public Transportation Services and Infrastructure Plan shall ensure that all the rights mentioned in Section V of this Act shall be enforced. VI Miscellaneous Provisions

Sec. 17. Implementing Agencies. - In the implementation of the provisions of

this Act, the DOTr shall lead and coordinate the implementation activities of the Department of Public Works and Highways, Department of the Interior and Local Government, Metropolitan Manila Development Authority, and concerned local government units.

Sec. 18. Implementing Rules and Regulations. - The DOTr, in consultation

with the other implementing agencies and concerned agencies, civil society organizations, and stakeholders, shall promulgate the implementing ruies and regulations within one hundred eighty (180) days from the effectivity of this Act.

Sec. 19. Penalties. -

(a) Any transport operator whose public transportation service terminals violate 28 Sections 6(b)(iii), 13(a), and 13(c) of this Act shall be fined One hundred thousand pesos (P100,000.00) for the first offense; Two hundred thousand pesos (P200,000.00) for the second offense; and Five hundred thousand pesos (P500,000.00) and suspension of the franchise for a period of one (1) year for the 32 third and succeeding offenses;

(b) Any transport operator whose public transportation service vehicles violate 2 Sections 6(a)(iii), 9, and 12 of this Act shall be fined One hundred thousand pesos 3 (P100,000.00) for the first offense; Two hundred thousand pesos (P200,000.00) for 4 the second offense; and Five hundred thousand pesos (P500,000.00) and 5 suspension of the franchise for a period of one (1) year for the third and succeeding 6 offenses; (c) Any transport operator or public transportation services driver who fails to 8 honor concessional or discounted fares under Section 7, Paragraph 2 of this Act shall 9 be fined One hundred thousand pesos (P100,000.00) for the first offense; Two 10 hundred thousand pesos (P200,000.00) for the second offense; and Five hundred 11 thousand pesos (P500,000.00) and suspension of the franchise or driver's license for 12 a period of one (1) year for the third and succeeding offenses; (d) Any transport operator or public transportation services driver who fails to compensate commuters for public transportation service breakdowns under Section 14 of this Act shall be fined One hundred thousand pesos (P100,000.00) for the first 16 offense; Two hundred thousand pesos (P200,000.00) for the second offense; and 17 Five hundred thousand pesos (P500,000.00) and suspension of the franchise or driver's license for a period of one (1) year for the third and succeeding offenses; (e) Any public transportation service driver who engages in dangerous on-street competition and behavior under Section 9 of this Act shall be fined One hundred thousand pesos (P100,000.00) for the first offense; Two hundred thousand pesos (P200,000.00) for the second offense; and Five hundred thousand pesos 23 (P500,000.00) and suspension of the driver's license for a period of one (1) year for the third and succeeding offenses; (f) Any person who appropriates or acquires public road space and foot paths for parking, commerce, or other activities which restrict public use of, or access to, 27 public roads shall be fined One hundred thousand pesos (P100,000.00) for the first offense; Two hundred thousand pesos (P200,000.00) for the second offense; and Five hundred thousand pesos (P500,000.00) for the third and succeeding offenses; (g) Any registered owner of private motorized transport or public transportation 31 service vehicles who fails to meet the emission standards referred to in Section 12 of 32 this Act shall be fined One hundred thousand pesos (P100,000.00) for the first

1 offense; Two hundred thousand pesos (P200,000.00) for the second offense; and 2 Five hundred thousand pesos (P500,000.00) for the third and succeeding offenses; 3 and (h) Any government official or employee who violates Sections 6, 7, 8, 10, 11, 5 12, 13, 14, and 15 of this Act shall be fined One hundred thousand pesos 6 (P100,000.00) for the first offense; Two hundred thousand pesos (P200,000.00) for 7 the second offense; and Five hundred thousand pesos (P500,000.00) for the third 8 and succeeding offenses. In addition to these fines, an administrative complaint 9 may also be filed against government officials or employees who violate this Act.

Sec. 20. Appropriations. - The initial amount necessary for the implementation

11 of this Act shall be charged against the current appropriation of the DOTr: Provided, 12 That the fines that may be collected in the enforcement of this Act shall be used 13 exclusively for its implementation: Provided, further, That such sums as may be 14 necessary for the continued implementation of this Act shall be included in the annual General Appropriations Act.

Sec. 21. Separability Clause. - If any provision of this Act is declared

17 unconstitutional or invalid, the other provisions not affected by such declaration shall 18 remain in full force and effect.

Sec. 22. Repealing Clause. - All laws, executive orders, administrative orders,

20 and rules and regulations inconsistent with this Act, are hereby repealed or amended 21 accordingly.

Sec. 23. 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,