1
Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City, Metro Manila 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. ____ 
Introduced by CIBAC Party-List Representative 
HON. EDUARDO “BRO. EDDIE” C. VILLANUEVA 
AN ACT 
PROVIDING FOR A MAGNA CARTA OF COMMUTERS 
EXPLANATORY NOTE 
Mobility provides one of the groundwork through which a person 
gains access to basic human needs, such as food, water, healthcare, 
education, and employment opportunities. The lack of connectivity further 
deprives the individual of the many social, medical, technological, 
educational, and other benefits that are made available to society.  
Mobility or connectivity is therefore essential to human growth, creativity, 
meaning, and experience. Conversely, the lack of proper, efficient, and 
effective mobility and connectivity limits an individual’s opportunities and 
growth and affects not only the individual or a specific sector in the 
community, but the society at large.  
Regrettably, countless Filipinos continue to suffer from lack of 
adequate mobility and connectivity. This perennial issue affects most the 
vulnerable sectors in the country: the young, the elderly, the women, the 
poor, the working class, and persons with disabilities.  
November 7, 2022
8:05 am
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This problem on mobility is exacerbated by the fact that while 69% 
of daily trips are made through public transport, 78% of road space is 
being taken up by private transport.1 
 
 It is, therefore, high time that the State takes another look into 
mobility issues that continue to beset the country and the Filipino people. 
Extra attention should be given most especially to the vulnerable sectors, 
the commuting public, the elderly, the women, the children, and others 
who mostly rely on public transportation and active transport whether in 
urban or rural areas.  
 
This bill seeks to bring us a step closer toward addressing mobility 
and connectivity issues by redirecting the State’s focus on giving priority 
to walking and public transport in road space allocation, as well as on 
developing and establishing infrastructures that maximize the use and 
benefits of the scarce public space through the use of high-occupancy 
public transport, or space-efficient pedestrian and cycling facilities. Efforts 
likewise are directed toward prohibiting boundary and commission-based 
revenue system that forces drivers, including jeepney and bus drivers, to 
compete for passengers and follow unsafe driving practices. This bills also 
aims to define with more definitiveness the rights of the commuting 
public—from public transportation services to safe and accessible 
infrastructure to clean air during travel and to commuter representation 
and participation—as well as the duties of the State, including the local 
governments, in ensuring these rights are recognized, protected, 
advanced, and implemented. 
 
In view of the foregoing, the immediate passage of this bill is 
earnestly sought. 
 
 
 
HON. EDUARDO “BRO. EDDIE” C. VILLANUEVA 
 
1 Japan International Cooperation Agency (JICA) and National Economic Development Authority 
(NEDA), Roadmap for Transport Infrastructure Development for Metro Manila and Its Surrounding 
Areas 
(Region 
III 
and 
Region 
IV-A), 
March 
2014, 
accessible 
at 
https://openjicareport.jica.go.jp/pdf/12149597.pdf, (last accessed July 11, 2022). 


3
Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City, Metro Manila 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. ____ 
Introduced by CIBAC Party-List Representative 
HON. EDUARDO “BRO. EDDIE” C. VILLANUEVA 
AN ACT 
PROVIDING FOR A MAGNA CARTA OF COMMUTERS 
Be it enacted by the Senate and House of Representatives of the 
1 
Philippines in Congress assembled: 
2 
3 
SECTION 1. Short Title. – This Act shall be known as the “Magna 
4 
Carta of Commuters.” 
5 
6 
SEC. 2. Declaration of Policy. – The State hereby recognizes 
7 
mobility as a basic human need. Without mobility, citizens are unable to 
8 
access basic services such as healthcare and education, or enjoy 
9 
fundamental freedoms. Thus, the State shall ensure that mobility is 
10 
enjoyed by people of all ages, abilities, gender, and economic status, and 
11 
not only by those who are physically fit, with private motor vehicles, or with 
12 
financial means.  
13 
14 
The State further recognizes the right of the commuters to travel 
15 
safely, conveniently, and reliably. To this end, the State shall develop and 
16 
establish mobility infrastructures and transportation services aimed at 
17 
promoting the welfare of the commuters and improving their mobility. The 
18 
welfare of the commuter shall also be the paramount objective in all 
19 
decisions related to the provision of mobility infrastructure and 
20 
transportation services. 
21 
22 
The State further guarantees the rights of all citizens, including the 
23 
commuter sector, to participate in the policy formulation, planning, 
24 
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implementation, management, monitoring, evaluation, and decision-
1 
making processes of all institutions, programs, projects, and services 
2 
affecting the rights, welfare, and privileges of the commuters. 
3 
 
4 
To attain the foregoing policy, the State shall provide the necessary 
5 
mechanisms, human and financial resources, and legal measures to 
6 
enable its citizens to enjoy fully the rights embodied in this Act.  
7 
 
8 
SEC. 3. Definition of Terms. — For purposes of this Act, the 
9 
following terms shall mean: 
10 
 
11 
a) 
Active Transport refers to non-motorized means of travel, including 
12 
walking or using a bicycle; 
13 
 
14 
b) 
Activity Center refers to a place in a city or municipality where people 
15 
gather regularly for work, worship, education, social events, trade, 
16 
exercise, leisure or other common interests and purposes; 
17 
 
18 
c) 
Advance Notice refers to the provision of early information regarding 
19 
any consultations with stakeholders, for which the period from the 
20 
announcement or delivery of the invitation to the consultation event 
21 
will be a minimum of 10 working days; 
22 
 
23 
d) 
Commuter refers to a person who needs to travel from one place to 
24 
another, often using a combination of transportation modes to get to 
25 
his/her destination; 
26 
 
27 
e) 
Greenway refers to a road, street, or path with ample greenery and 
28 
shade where private motorized transport is not allowed, that also 
29 
serves as recreational space or a public park, in order to welcome 
30 
and encourage environmentally sustainable transportation modes, 
31 
especially walking and cycling; 
32 
 
33 
f) 
High-Volume Transport Corridor refers to walkways, paths, roads, 
34 
bridges, streets or mass transportation terminals where the flow of 
35 
people is at least 2,000 persons per hour per direction during peak 
36 
travel periods; 
37 
 
38 
g) 
Micromobility refers to travel using electronic or non-motorized 
39 
vehicles weighing not more than 100 kilograms;  
40 
 
41 
h) 
Mobility refers to the ability of a person to travel from one place to 
42 
another to conduct daily and extraordinary activities and business; 
43 
 
44 
i) 
Mobility Infrastructure refers to physical facilities, such as foot 
45 
paths, bicycle lanes, roads, PUV loading/unloading bays, PUV 
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5
terminals, and public transport systems, that support and enhance a 
1 
person's mobility. 
2 
 
3 
j) 
Private Motorized Transport refers to privately owned motorized 
4 
vehicles weighing more than 100 kilograms;  
5 
 
6 
k) 
Public Transport refers to public sector and franchised private 
7 
sector services that transport people over land or water, including but 
8 
not limited to jeepneys, utility vehicles (UVs), buses, minibuses, 
9 
railways, ferries, taxis and tricycles; and 
10 
 
11 
l) 
Urbanized Municipality refers to a municipality in the Philippines 
12 
where the aggregate area in the municipality zoned as residential, 
13 
commercial or industrial exceeds 40% of the total land area of the 
14 
municipality. 
15 
 
16 
SEC 4. Right to Public Transportation Services that Satisfy 
17 
Commuters’ Mobility Requirements. – The State shall ensure that 
18 
adequate public transportation services are available to meet the needs of 
19 
its citizens in the most prompt, convenient, and accessible manner 
20 
possible.  
21 
 
22 
The State shall ensure that: 
23 
 
24 
a) 
Every town and municipality will have a community-wide network of 
25 
safe sidewalks, bicycle lanes, and roads to enable safe and 
26 
convenient travel around the city entirely by foot, bicycle or by other 
27 
forms of light mobility; 
28 
 
29 
b) 
Public Transport services are available within a 500-meter walk from 
30 
any residence or activity center in a city; 
31 
 
32 
c) 
Public Transport services are connected to another public service 
33 
within a 300-meter walk to promote seamless connectivity; 
34 
 
35 
d) 
Public Transport services are in sufficient quantity and frequency so 
36 
that commuter waiting time at stops and terminals do not exceed 10 
37 
minutes during peak demand periods; 
38 
 
39 
e) 
Public Transport is accorded priority in the use of road space and 
40 
traffic signal operation so that it is able to traverse 15 kilometers 
41 
within 1 hour, including all scheduled stops; 
42 
 
43 
f) 
Public Transport services are supported by properly equipped, 
44 
adequately-sized, and well-maintained terminals and stops, with 
45 
attention to the safety and comfort of commuters; 
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1 
g) 
Every road with a speed limit of over 20 kilometers per hour (kph) and 
2 
under 60 kph shall feature dedicated pedestrian infrastructure, in the 
3 
form of an unobstructed walking path of at least 2.5 meters wide in 
4 
each direction;  
5 
 
6 
h) 
Every road with a speed limit of under 60 kph shall feature dedicated 
7 
bike lanes which are wide enough to comfortably accommodate at 
8 
least two bikes side by side; 
9 
 
10 
i) 
Transport services are inclusive, so that they are conveniently 
11 
accessible to persons of all ages and abilities. Public Transport 
12 
infrastructure and vehicles shall be designed and implemented so 
13 
that persons with disabilities or special needs, including senior 
14 
citizens, are not excluded from their use; and  
15 
 
16 
j) 
In all renovations of existing infrastructure or construction of new 
17 
infrastructure, preserving or improving the travel time impact on 
18 
Public Transport, bicycles, and pedestrians shall be prioritized over 
19 
preserving or improving travel time impact on private motorized 
20 
transport. The State shall generally avoid the implementation of 
21 
projects that produce a positive impact on the travel time of users of 
22 
private motorized modes at large expense to Public Transport, 
23 
bicycles, and pedestrians. 
24 
 
25 
SEC. 5. Right to Safe, Convenient, and Affordable Public 
26 
Transport Services. – The State shall ensure that Public Transport 
27 
services are safe, dignified, convenient, comfortable, easily accessible, 
28 
and reliable, while remaining affordable to the general public. 
29 
 
30 
Concessional or discounted fares shall be offered for disadvantaged 
31 
or special groups, such as students, senior citizens, and persons with 
32 
disabilities, in accordance with law. The State shall endeavor to provide 
33 
subsidies or incentives to compensate for discounts offered to special or 
34 
disadvantaged groups other than the incentives provided under existing 
35 
laws. 
36 
 
37 
The State shall also reward the use of Public Transport via financial 
38 
and non-financial incentives to promote the frequent use of Public 
39 
Transport. The State shall ensure that it is more economical for commuters 
40 
to use Public Transport more frequently rather than less frequently.  
41 
 
42 
During periods when transportation services are deficient, the State 
43 
shall employ alternative approaches to enable additional mobility options 
44 
for its citizens, including the use of public resources to fill temporary gaps 
45 
in services, such as government-owned vehicles or through government 
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7
charter or lease of private vehicles. 
1 
 
2 
The State shall also promote and ensure safe and efficient driving 
3 
behavior by Public Transport drivers through mandatory trainings and 
4 
more stringent licensing.  
5 
 
6 
Streets shall also be designed in accordance with international best 
7 
practices in road safety design to reduce the occurrence of dangerous 
8 
driving behavior. 
9 
 
10 
SEC. 6. Right to Infrastructure for Pedestrians, Cyclists, and 
11 
Persons with Disabilities. — The State shall ensure that roads are 
12 
accessible to persons with impaired mobility, among others, and that 
13 
adequate and appropriate bicycle lanes are available.  For this purpose, 
14 
the State shall:  
15 
 
16 
a) 
Accord priority to the development of adequate sidewalks and 
17 
networks of bicycle lanes that encourage Active Transport and 
18 
provide safe and direct access to priority destinations, such as 
19 
housing, education, business centers, markets and grocery stores, 
20 
and Public Transport nodes; 
21 
 
22 
b) 
Ensure that all Public Transport stops are accessible to persons with 
23 
disabilities and impaired movement, including senior citizens; 
24 
 
25 
c) 
Prioritize ease of access by pedestrians, especially at Public 
26 
Transport stops and government facilities, over mobility of private 
27 
motorized transport; 
28 
 
29 
d) 
Ensure that safe and adequate walking and cycling infrastructure is 
30 
incorporated in the design and implementation of road transport 
31 
projects at national and local government levels; 
32 
 
33 
e) 
Ensure that the comprehensive land use plan of every city includes 
34 
the development of a city-wide network of safe sidewalks, bicycle 
35 
lanes, and road lanes to enable travel around the city entirely by foot, 
36 
bicycle, or by other forms of light mobility; and 
37 
 
38 
f) 
Ensure that travel by walking or cycling is no less direct to 
39 
destinations than travel by private motorized transport. No commuter 
40 
shall be made to travel above or below street level to cross any street 
41 
or intersection if it is possible to implement an at-grade crossing. No 
42 
commuter, when traveling by walking or cycling, shall be made to 
43 
diverge from his or her route of travel if a commuter traveling by private 
44 
motorized vehicle would have enjoyed a more direct trip. 
45 


 
 
 
8
In cities and urbanized municipalities, the State shall ensure that the 
1 
infrastructure of each barangay includes: 
2 
 
3 
a) 
safe foot paths or sidewalks, free of obstructions, well-protected from 
4 
automobiles, compliant with universal design guidelines, and friendly 
5 
and accessible to pregnant women, elderly, and persons with strollers 
6 
or wheelchairs; 
7 
 
8 
b) 
networks of greenways to encourage active transport modes (walking 
9 
and cycling); 
10 
 
11 
c) 
proper lighting on all roads and footpaths to allow safe travel even after 
12 
dark; 
13 
 
14 
d) 
tactile paving on sidewalks of high-volume transport corridors for the 
15 
benefit of pedestrians who are blind;  
16 
 
17 
e) 
bicycle racks in every transportation hub or terminal and in every 
18 
commercial, community and activity center. Such racks shall be 
19 
provided at street level if possible, and at most one level above or 
20 
below the street; and 
21 
 
22 
f) 
Safe intersections and pedestrian crossings such as provision of 
23 
raised pedestrian platforms, highly visible advance warning signages, 
24 
adequate street lighting, mid crossing refuges, traffic calming for 
25 
motorized vehicles and curb outstands to reduce road pavement 
26 
crossing width. 
27 
 
28 
In addition, the State shall promote light mobility by requiring that 
29 
buildings have adequate bicycle racks that can accommodate ten percent 
30 
(10%) of the anticipated users of such building. 
31 
 
32 
SEC. 7. Right to a Fair Share of Public Road Space. — The State 
33 
shall ensure that public road space is used in a manner that delivers the 
34 
greatest socio-economic benefit. The State shall also ensure and prioritize 
35 
the safety of road users. For this purpose, it shall ensure that the design, 
36 
engineering, and operation of road infrastructure are appropriate to 
37 
achieve the goal of road safety and access for non-motorized and 
38 
vulnerable users. 
39 
 
40 
Because roads are a scarce public asset, the State shall ensure that 
41 
road space is prioritized for modes of travel (e.g., public transport, walking, 
42 
cycling, etc.) that move more people and maximize the productivity and 
43 
social benefit of the public asset. The planning and design of roads must 
44 
prioritize the needs of pedestrians, micromobility users, and Public 
45 
Transport users. Public Transport shall also have priority use of road 
46 


 
 
 
9
space over private motor vehicles. 
1 
 
2 
 
The State shall ensure that there is no private appropriation of public 
3 
road space and foot paths for parking, commerce, or other activities that 
4 
will restrict public use of, or access to, the road. 
5 
 
6 
SEC. 8. Right to Breathe Clean Air during Travel. — The State 
7 
shall take measures to ensure that commuters are able to travel using 
8 
Public Transport or active transport (e.g., walking or cycling) without 
9 
compromising their health. 
10 
 
11 
The State shall ensure that all Public Transport vehicles comply with 
12 
the emission standards set by the Department of Environment and Natural 
13 
Resources (DENR), Department of Trade and Industry (DTI), and/or the 
14 
Land Transportation Franchising and Regulatory Board (LTFRB). 
15 
 
16 
The State shall also formulate and implement programs and policies 
17 
aimed at encouraging citizens to commute using cycling or other lighter 
18 
vehicles, thus reducing vehicle-related pollution emissions. The State shall 
19 
also provide facilities and programs which support and incentivize the use 
20 
of cleaner alternative fuels, other types of renewable energy and electric 
21 
vehicles. 
22 
 
23 
The State shall measure air quality along major transport corridors 
24 
in all cities and provide this information to the public in real time. When air 
25 
quality exceeds safe levels according to internationally accepted 
26 
standards, particularly from the World Health Organization, the State shall 
27 
activate emergency procedures with a view to reducing the exposure of 
28 
the public, especially the young and the elderly, to unclean air. 
29 
 
 
 
30 
SEC. 9. Right to Information for Efficient and Convenient 
31 
Travel. — The State shall provide timely and adequate information so that 
32 
commuters are able to make good travel plans and choices about modes 
33 
and routes. For this purpose, the State shall:  
34 
 
35 
a) 
Make publicly available information on all Public Transport services, 
36 
including route maps, fares, schedules, and real time vehicle location 
37 
and availability, including traffic situation, for the convenience of 
38 
commuters; 
39 
 
40 
b) 
Ensure that such information is prominently displayed at all stops of 
41 
public transport services and at other locations deemed necessary or 
42 
beneficial to commuters;  
43 
 
44 
c) 
Establish technical standards and regulations for the display of street 
45 


 
 
 
10
maps at strategic locations in each neighborhood, for the reference 
1 
of residents and visitors; and  
2 
 
3 
d) 
Ensure that, at all ports, airports, and terminals, a 24-hour 
4 
information/assistance counter will be available to serve the needs of 
5 
travelers. 
6 
 
7 
SEC. 10. Right to Special Attention during Service Breakdowns 
8 
and to Compensation for Deficiencies in Service. — In the event of a 
9 
breakdown in a Public Transport service, passengers shall be entitled to 
10 
receive promptly and without delay, from the transport operator, a full 
11 
refund of the fare and assistance in securing onward journeys. 
12 
 
13 
Stranded passengers shall be informed in a timely manner about 
14 
how they will be redirected to their final destination. If onward journeys are 
15 
unavailable or unreasonably delayed for more than twelve (12) hours, the 
16 
transport operator shall provide its passengers with access to food, water, 
17 
and waiting area with clean restrooms and ventilation. 
18 
 
19 
SEC. 11. Right to Representation and Participation. — The State 
20 
shall ensure that the welfare and interest of commuters are considered in 
21 
all decision-making related to mobility and transportation services. 
22 
Commuters shall be adequately consulted on all matters affecting the 
23 
welfare and mobility of commuters.  
24 
 
25 
SEC. 12.  Annual Public Transportation Services and 
26 
Infrastructure 
Plans 
and 
Programs. 
— 
The 
Department 
of 
27 
Transportation (DOTr), in coordination with local government units and 
28 
other concerned stakeholders shall prepare, annually, a national public 
29 
transportation services and infrastructure plan and program to satisfy the 
30 
evolving mobility requirements in the country, especially in urban areas.  
31 
 
32 
Local government units shall also prepare their own local public 
33 
transportation services and infrastructure plan to ensure the mobility of 
34 
their citizens within the context of their situation, needs and stages of 
35 
development.  
36 
 
37 
Metropolitan authorities and local government units shall also be 
38 
responsible for measuring, analyzing, and updating the mobility 
39 
requirements in each locality and to develop plans and programs to 
40 
address the mobility requirements of their citizens. 
41 
 
42 
SEC. 13. Vision Zero in Road Safety. — The State shall adopt the 
43 
Vision Zero in road safety, which aims to achieve a highway system with 
44 
no fatalities or serious injuries involving road traffic. For this purpose, the 
45 
State shall implement a comprehensive road safety program and allocate 
46 


 
 
 
11
funding to implement activities under the five pillars of the Philippine Road 
1 
Safety Action Plan, namely Road Safety Management, Safer Roads, 
2 
Safer Vehicles, Safer Road Users, and Post-Crash Response.  
3 
 
4 
SEC. 14. Implementing Agencies. —  The DOTr, DENR, DTI, 
5 
Department of Public Works and Highways (DPWH), Department of 
6 
Interior and Local Government (DILG), Metropolitan Manila Development 
7 
Authority (MMDA) and other metropolitan councils, shall be the 
8 
implementing agencies for this Act, with DOTr as the lead implementing 
9 
agency with responsibility 
for coordinating and monitoring 
all 
10 
implementation activities. 
11 
 
12 
The foregoing agencies shall include in their respective budget’s 
13 
funds for the effective implementation of this Act.  
14 
 
15 
Within two (2) years from the effectivity of this Act, all concerned 
16 
government agencies, including local government units, shall ensure that 
17 
relevant technical standards, guidelines, and manuals are amended to 
18 
incorporate the requirements of this Act. 
19 
 
20 
SEC. 15. Implementing Rules and Regulations. — Within one 
21 
hundred and eighty (180) days from the effectivity of this Act, the DOTr and 
22 
the other implementing agencies, upon consultation with relevant 
23 
government agencies and other stakeholders, shall promulgate the 
24 
implementing rules and regulations for the effective implementation of this 
25 
Act. 
26 
 
27 
SEC. 16. Penal Provisions. — Any person in violation of any of the 
28 
provisions of this Act shall be fined not less than Ten Thousand Pesos 
29 
(Php10,000) but not more than Five Hundred Thousand Pesos 
30 
(Php500,000). 
31 
 
32 
If the offender is a public official, he/she shall also suffer the penalty of 
33 
perpetual disqualification from holding public office, and be dismissed from 
34 
government service, after due process.   
35 
 
36 
SEC. 17. Separability Clause. — Any portion or provisions of this 
37 
Act that may be declared unconstitutional or invalid shall not have the 
38 
effect of nullifying other portions or provisions hereof as long as such 
39 
remaining portions or provisions can still subsist and be given effect in 
40 
their entirety. 
41 
 
42 
SEC. 18. Repealing Clause. — All laws, presidential decrees, 
43 
executive orders, memoranda, circulars and other issuances or parts 
44 
thereof, which are inconsistent with this Act, are hereby repealed or 
45 


 
 
 
12
modified accordingly. 
1 
 
2 
SEC. 19. Effectivity. — This Act shall take effect fifteen (15) days 
3 
after its publication in the Official Gazette or at least two (2) newspapers 
4 
of general circulation. 
5 
 
6 
Approved, 
7 
 
8