EIGHTEENTH CONGRESS OF THE 
) 
REPUBLIC OF THE PHILIPPINES 
)
First Regular Session 
)
of tf)f f t r c r r t a r ?
SENATE
S. No. 116 5
•If 
NOV 12 
AlO 5 7
R EC ElVrO BY.
Introduced by SENATOR LEILA M. DE LI^L\
AN ACT
PROVIDING FOR MINIMUM STANDARDS OF COMMON CARRIAGE, 
CREATING A PASSENGER TRANSIT RIGHTS COMMISSION, 
PROVIDING FUNDS THEREFOR, AND FOR OTHER PURPOSES
EXPLANATORY NOTE
An intense obsession with building roads and bridges and subways without 
bearing in mind the consequences -  whether direct or incidental, that will befall upon 
those in whose name and for whose benefit they were built, is a sign of an inefficient 
and unfocused management. And what a travesty would it be if the people who will 
avail thereof dread the commute1 -  for the congestion, 2 3 4 5 the hazards3 and the futility4 
thereof.5 And how tragic would it be if what was dubbed as the “boldest infrastructure 
development program in recent Philippine history”6 contribute to further wastage and
1 T o rd e c illa , K a rm e la , “3 in 10 Filipinos dread their commute, says survey." 12 M a y  2 0 1 6 . CN N P h ilip p in e s . R e trie v e d  fro m : 
h ttp ://c n n p h ilip p in e s .e o m /m e tro /2 0 1 6 /0 5 /1 2 /filip in o s -c o m m u te -w o rs t-p a rt-o f-d a y -fo rb e s -s u rv e y .h tm l < la s t v is ite d  o n  05 
M a rc h  2 0 1 9 >
2 In q u ire r M e tro , "'Build, Build, Build' not enough to decongest Metro Manila traffic, says Enrile." 21 Ja n u a ry 2 0 1 9 . 
In q u ire r.n e t. R e trie v e d  fro m : h ttp s ://n e w s in fo .in q u ire r.n e t/1 0 7 5 4 3 4 /b u ild -b u ild -b u ild -n o t-e n o u g h -to -d e c o n g e s t-m e tro - 
m a n ila -tra ffic -s a y s -e n rile # ix z z 5 h G s a E S K G  < la s t v is ite d  o n  0 5  M a rc h  2 0 1 9 >
3 M a n ila  S ta n d a rd  L ife s ty le , "Stress, weight gain and pain: The health hazards a f commuting." 17 F e b ru a ry  2 0 1 6 . M a n ila  
S ta n d a rd .N e t. R e trie v e d  fro m : h ttp ://m a n ila s ta n d a rd .n e t/life s ty le /w e llb e in g /1 9 9 5 7 3 /s tre s s -w e ig h t-g a in -a n d -p a in -th e - 
h e a lth -h a z a rd s -o f-c o m m u tin g -.h tm l < la s t v is ite d  o n  0 5  M a rc h  2 0 1 9 >
4 R ivas, R alf, "Hits and misses ofDuterte's infrastructure push." 19 July 2 0 1 8 . R a p p le r. R e trie v e d  fro m : 
h ttp s ://w w w .ra p p le r.c o m /b u s in e s s /2 0 7 5 6 1 -h its -m is s e s -d u te rte -b u ild -b u ild -p ro g ra m  < la s t v is ite d  o n  05 M a rc h  2 0 1 9 >
5 R ive ra , Kay, "The Filipino commuters' crisis."  0 4  M a y  2 0 1 8 . In q u ire r.n e t. R e trie v e d  fro m :
h ttp s ://o p in io n .in q u ire r.n e t/1 1 2 9 3 0 /filip in o -c o m m u te rs -c ris is ? u tm _ e x p id = .X q N w T u g 2 W 6 n w D V U S g F J X e d .l < la s t v is ite d  o n
0 5  M a rc h  2 0 1 9 >
6 D io k n o , B e n ja m in , "Financing the Philippine Golden Age o f Infrastructure." 01 Jun e 2 0 1 7 . B usine ss W o rld  O n lin e . 
R e trie v e d  fr o m : a t h ttp s ://w w w .b w o rld o n lin e .c o m /c o n te n t.p h p ? s e c tio n = O p in io n 8 ltitle = F in a n c in g -th e -P h ilip p in e -g o ld e n - 
a g e -o f-in fra s tru c tu re & id = 1 4 6 0 3 9  < la s t v is ite d  o n  0 5  M a rc h  2 0 1 9 >


inconvenience^, a logistical nightmare without a direct and immediate solution to the 
consequences.
“Public transportation is infrastructure, too”7 8 9 and must be also among the top 
priorities of the State. Most Filipinos are at the mercy of public transportation^ for 
roughly three hundred and eighty-four (384) hours every year. Our government can 
no longer rest in merely declaring empty promises.10 Action must be done, and it must 
be both swift and efficient.
The traffic congestion is a mere fraction of the daily stressors11 our commuters 
encounter and struggle with whilst availing of the services of common carriers.12 13 14 15 While 
uncomfortably seated in cramped public utility vehicles, the space -  or the lack of it, 
becomes least of their concerns. 13 They clamor for comfort, but ultimately, they beg for 
safety. 14
It cannot be denied that these days public transportation is “run like a 
business”, 15 subjecting commuters to daily passage in dilapidated vehicles under the 
control of unprofessional and abusive drivers.16 17 Exposed to this unfortunate 
experience and a daily exposure to risks and accidents,1^ under the hands of drivers
7 F e rre ra s , V in ce , "Brace fo r worse traffic congestion as more infra works start." 07 O c to b e r 2 0 1 8 . B usiness W o rld  O n lin e . 
R e trie v e d  fro m : h ttp s ://w w w .b w o rld o n lin e .c o m /b ra c e -fo r-w /o rs e -tra ffic -c o n g e s tio n -a s -m o re -in fra -w o rk s -s ta rt/ < la st 
v is ite d  o n  0 5  M a rc h  2 0 1 9 >
8 K ritz , B en, "Public transportation is infrastructure, too." 11 M a y  2 0 1 7 . T h e  M a n ila  T im e s. R e trie v e d  fro m : 
h ttp s ://w w w .m a n ila tim e s .n e t/p u b lic -tra n s p o rta tio n -in fra s tru c tu re /3 2 6 6 0 9 / < la s t v is ite d  o n  0 5  M a rc h  2 0 1 9 >
9 "How safe are Taxis, Buses and Jeepneys Really?" 17 Ju ly 2 0 1 7 . S p o t.p h . R e trie v e d  fro m :
h ttp s ://w w w .s p o t.p h /n e w s fe a tu re s /th e -la te s t-n e w s -fe a tu re s /7 0 8 0 8 /ta x i-b u s e s -je e p n e y -ltfrb -s a fe ty -a 0 0 1 7 1 -2 0 1 7 0 7 1 7  
< 0 5  M a rc h  2 0 1 9 >
10 R a p p le r O n lin e , "Plans and promises: Presidential bets on transportation, infrastructure." 13 A p ril 2 0 1 6 . R e trie v e d  fro m ; 
h ttp s ://w w w .ra p p le r.c o m /n a tio n /p o litic s /e le c tio n s /2 0 1 6 /1 2 9 3 0 7 -c a m p a ig n -p ro m is e s -tra n s p o rta tio n  < la s t v is ite d  o n  05 
M a rc h  2 0 1 9 >
11 R o b le s, A la n , "The agony o f Metro Manila commuters." 14 A p ril 2 0 1 2 . G M A  N e w s O n lin e . R e trie v e d  fro m : 
h ttp s ://w w w .g m a n e tw o rk .c o m /n e w s /n e w s /s p e c ia lre p o rts /2 5 4 8 9 8 /th e -a g o n y -o f-m e tro -m a n ila -c o m m u te rs /s to ry / < la s t 
v is ite d  o n  0 5  M a rc h  2 0 1 9 .>
12 G a m b o a , Ray, "Impact o f public safety taken lightly." 13 F e b ru a ry  2 0 1 4 . P h ilS ta r G lo b a l. R e trie v e d  fro m : 
h ttp s ://w w w .p h ils ta r.c o m /b u s in e s s /2 0 1 4 /0 2 /1 3 /1 2 8 9 6 4 6 /im p a c t-p u b lic -s a fe ty -ta k e n -lig h tly  < la s t v is ite d  o n  0 5  M a rc h  
2 0 1 9 >
13 F ast T im e s , "Survey: Filipinos most dissatisfied commuters in Asia Pacific region." 30 M a y  2 0 1 6 . T h e  M a n ila  T im e s. 
R e trie v e d  fro m : h ttp s ://w w w .m a n ila tim e s .n e t/s u rv e y -filip in o s -m o s t-d is s a tis fie d -c o m m u te rs -in -a s ia -p a c ific -re g io n /2 6 5 0 2 6 / 
< la s t v is ite d  o n  0 5  M a rc h  2 0 1 9 >
14 P o rtu g a l, A n n e , "The Filipino Commuter is Terrified." 2 0  D e c e m b e r 2 0 1 4 . R a p p le r. R e trie v e d  fro m : 
h ttp s ://w w w .r a p p le r.c o m /m o v e -p h /is p e a k /7 8 5 2 0 -filip in o -c o m m u te r-te rrifie d  < la s t v is ite d  o n  0 5  M a rc h  2 0 1 4 >
15 S a n tia g o , K a trin a , "Dangerous Daily Commute." 0 4  O c to b e r 2 0 1 4 . T h e  M a n ila  T im e s . R e trie v e d  fro m : 
h ttp s ://w w w .m a n ila tim e s .n e t/d a n g e ro u s -d a ily -c o m m u te /1 3 1 7 8 9 / < la s t v is ite d  o n  0 5  M a rc h  2 0 1 9 >
16 L a u d e , Ja im e . "MMDA should check traffic mess on a macro scale." 23 D e c e m b e r 2 0 0 2 . P h ilS ta r G lo b a l. R e trie v e d  fro m : 
h ttp s ://w w w .p h ils ta r.c o m /m e tro /2 0 0 2 /1 2 /2 3 /1 8 8 9 3 1 /1 4 5 m m d a -s h o u ld -c h e c k -tra ffic -m e s s -m a c ro -s c a le l4 6  < la s t v is ite d  
o n  0 5  M a rc h  2 0 1 9 >
17 "The never-ending train horror saga." 21 N o v e m b e r 2 0 1 7 . T h e  M a n ila  T im e s. R e trie v e d  fro m : 
h ttp s ://w w w .m a n ila tim e s .n e t/n e v e r-e n d in g -tra in -h o rro r-s a g a /3 6 4 0 8 1 / < la s t v is ite d  o n  0 5  M a rc h  2 0 1 9 >


and operators having very little to no regard to the rights of commuters,18 it therefore 
e\becomes obligatory upon the State to ensure their safety1^ whenever they avail of 
services provided by common carriers.
The Supreme Court has declared that common carriers are obliged “to transport 
its passengers to their destinations with the utmost diligence of a very cautious 
person.”20 Calculated to protect the passengers from “tragic mishaps that frequently 
occur in connection with rapid modern transportation”,21 the Civil Code Commission 
deemed it best to exact such high standard of care as “imperatively demanded by the 
precariousness of human life and by the consideration that every person must in every 
way be safeguarded against all injury.”22 23
This bill highlights the role of the State in providing a comfortable and safe 
experience to the riding public. Understanding that the availment of the transport 
services is an essential part of the daily lives of Filipinos, the State through this Act 
shall provide minimum standards that must be maintained and observed by common 
carriers so that the rights and welfare of the people will be upheld and protected.
The standards herein provided are not a mere enumeration of empty promises, 
as this Act also creates a Passenger Transit Rights Commission which shall see to it 
that these standards are observ^ed and adjusted as the need arises. The Commission 
will not only evaluate the conditions to which the riding public are exposed, it shall 
also study and lay down contingency plans so that instances where technical glitches23 
create additional burden for commuters to suffer from, immediate and efficient 
assistance and resolution shall be delivered by the concerned government agency or 
office.
Immediate assistance is also ensured under this bill as a Transportation Action 
Centers (TACs) shall be established to take charge of receiving and adjudicating 
passenger complaints. This will be the avenue provided to the riding public for prompt 
redress of their grievances. TACs shall be established all over the Philippines to
18 G a rc ia , Pia, "Bus accidents: Quick Facts and Figures." 23 Ju ly 2 0 1 5 . CNN P h ilip p in e s . R e trie v e d  fro m : 
h ttp ://c n n p h ilip p in e s .e o m /n e w s /2 0 1 5 /0 3 /0 5 /b u s -a c c id e n ts -q u ic k -fa c ts -a n d -fig u re s .h tm l < la s t v is ite d  o n  0 5  M a rc h  2 0 1 9 >
19 O rd in a rio , C ai, "Safety o f commuters should be priority in transport plan." 28 N o v e m b e r 2 0 1 4 . B usiness M ir r o r . R e trie v e d  
fr o m : https://buslnessmirror.com.ph/2014/ll/28/safety-of-commuters-should-be-priority-in-transport-plan/<\ast v is ite d  
o n  0 5  M a rc h  2 0 1 9 >
20 S u lp icio  Lines vs CA. G.R. N o. 113578. (July 1 4 ,1 9 9 5 )
21 R e p o rt o f th e  C o d e  C o m m is s io n , pp . 3 5 -3 6
22 Ibid.
23 P a trim o n io , K ate , "10 Nightmare Train Accidents That Are All Too Real." 20 N o v e m b e r 2 0 1 7 . S p o t.p h . R e trie v e d  fro m : 
h ttp s ://w w w .s p o t.p h /n e w s fe a tu re s /th e -la te s t-n e w s -fe a tu re s /7 2 0 6 4 /1 0 -tra in -a c c id e n ts -in -m a n ila -a l8 6 7 -2 0 1 7 1 1 2 0 -lfrm  
< la s t v is ite d  o n  0 4  M a rc h  2 0 1 9 >


minimize the effort needed from the riding public to obtain relief. Provincial 
passengers should not be saddled the burden of having to jump through bureaucratic 
hoops just to enforce their rights.
This bill establishes clear standards for service for the riding public and 
provides relief against common carriers who fail to meet them.
The true and lasting solution to traffic congestion is safe and reliable public 
transportation. The era of coffins with wheels must come to a close.
Approval of this measure is earnestly sought.
IJ:iIA  M. DE LIMA


EIGHTEENTH CONGRESS OF THE 
) 
REPUBLIC OF THE PHILIPPINES 
)
First Regular Session 
)
SENATE
S. No. 1 1 6 5
0l 
feftT ft.1T ?
•19 
NOV 12 
A10 5 7
RECEIVED BY_
Introduced by SENATOR LEILA M. DE LIMA
AN ACT
PROVIDING FOR MINMUM STANDARDS OF COMMON CARRIAGE, 
CREATING A PASSENGER TRANSIT RIGHTS COMMISSION, 
PROVIDING FUNDS THEREFOR, AND FOR OTHER PURPOSES
Be it enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled:
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Section i. Short Title. -  This Act shall be known as the “Passenger Transit
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Rights Acts of 2019.”
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Sec. 2. Declaration of Policy. -  It shall be the policy of the State to protect and
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promote the rights of the public to a safe and suitable public transport system.
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Towards this end, the State shall establish and implement programs and services that
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will ensure that the public will be provided with adequate protection and a venue
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where they can promptly enforce their rights.
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Sec. 3. Definition of Terms. -  For the purposes of this Act, the following terms
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are hereby defined:
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a) Contract of Transportation -  shall refer to the contract created when a 
person or entity obligates himself or itself to transport persons or property' 
from one place to another for a consideration. The contract may involve 
carriage of passengers or carriage of goods;
b) Common Carrier -  shall refer to persons, corporations, firms or 
associations engaged in the business of carrying or transporting passengers 
or goods or both, by land, water, or air, for compensation, offering their


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services to the public, as defined by Republic Act No. 386, otherwise known 
as the “Civil Code of the Philippines”;
c) Low Passenger Capacity -  shall refer to common carriers whose maximum 
capacity does not exceed six (6) passengers;
d) Passenger -  shall refer to one who travels in a common carrier by virtue of 
a contract, express or implied, with the carrier as to the payment of fare or 
that which is accepted as an equivalent thereof. A passenger is still 
considered as such even if he is being carried gratuitously or under a 
reduced fare, subject to the rule in Article 1758 of the Civil Code of the 
Philippines, which provides that when a passenger is carried gratuitously, a 
stipulation limiting the common carrier’s liability for negligence is valid;
e) Overloading -  shall refer to the act of loading people over and above the 
registered carrying capacity of the covered vehicle; and
f) Trip-cutting -  shall refer to the unauthorized act of changing announced 
and contracted routes.
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Sec. 4. Diligence Required. -  The diligence required of common carriers as laid
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down in Article 1755 of the Civil Code of the Philippines, obligates the common carriers
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to carry passengers safely as far as human care and foresight can provide, using the
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utmost diligence of very cautious persons, with due regard for all the circumstances.
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The diligence herein required shall not be subject to any stipulation intending to
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dispense with or lessen it; any stipulation to the contrary shall thus be void.
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Sec. 5. Minimum Standards of Common Carriage. -  The following are the
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minimum standards that must be provided and maintained by common carriers to all
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passengers the moment the contract of transportation is perfected:
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1. In common carriers with low passenger capacity as defined in this Act, eveiyr
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passenger has the right to travel therein while seated throughout the
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journey. The driver, conductor and/or staff are not permitted to welcome
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any passenger beyond the vehicle’s maximum capacity, and any form of
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overloading shall be prohibited.
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2. All common carriers must provide comfortable seating and their windows
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should be intact. Larger vehicles must have an emergency exit.


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3- The passengers are entitled to enjoy a safe ride. The passengers’ safety is the 
responsibility of the driver and his/her operator, who may be penalized if 
found putting the commuters’ safety in danger through reckless driving. 
Availability of first aid kits is strongly encouraged.
4. The driver, conductor and staff are required to behave in a decent manner.
5. Drivers cannot demand a higher fare than what is indicated in the fare 
matrix provided by concerned government agencies. In the case of metered 
vehicles, drivers shall not demand an amount higher than what the meter 
reflects at the end of the journey.
6. Drivers are mandated to carry, at all times, sufficient change. Passengers 
shall have the right to demand and receive exact change.
7. Metered vehicles cannot refuse passengers on the ground of distance or 
heavy traffic.
8. Passengers shall be provided safe, clean, suitable, well-lighted and secured 
waiting sheds.
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The rights granted under this Act shall not in any manner mean any reduction,
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diminution, discontinuation or elimination of other existing rights already enjoyed by
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passengers. Rights already vested prior to the effectivity of this act shall remain to be
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in full force and effect upon the passage of this Act.
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Sec. 6. Creation of the Passenger Transit Rights Commission. -  There shall be
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a Passenger Transit Rights Commission (PTRC) which shall be attached to the
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Department of Transportation (DOTr), composed of one (1) Commissioner, (1) one
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Deputy Commissioner and five (5) Members who shall be vested with the powers and
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duties hereafter specified.
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Two (2) members each shall be chosen from among the members of passenger
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and common carrier organizations, respectively. The Commissioner, Deputy
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Commissioner and the three (3) remaining Members shall come from the public
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sector, with the latter to be chosen from among the recommendees of the Secretary of
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the Department of Transportation.


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Upon assumption into office, the members nominated by the passenger and
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common carrier organizations shall divest themselves of any affiliation with or interest
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in the organization to which they belong,
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The Commission shall sit en banc only for purposes of promulgating rules and
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regulations governing the formulating policies affecting its administration and
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operations. The Commission shall exercise its adjudicatory powers only through its
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Legal Division.
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The Commuter Safety Division of the PTRC is in charge of ensuring safe,
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efficient and comfortable travel of passengers from arrival to departure at terminals,
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train stations, airports and seaports shall be Commuters Affairs Division.
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The Commuter Education Division shall be the division responsible for public,
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school and corporate trainings, publications and information dissemination on all
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modes of transportation.
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The Commuter Communications Division shall establish and maintain help
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desks all over the Philippines which will assist passengers in their transport needs. The
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division shall also establish and manage a Passenger Assistance Hotline which shall
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operate through landline, cellular and online means.
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All passenger complaints pertaining to the rights granted under this Act shall
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be adjudicated by the Transportation Action Center (TAC) on the first level, and may
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be appealed to the Legal Division. The decision of the Legal Division shall be final and
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executory. 
The Legal Division shall also be tasked with formulation and
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implementation of rules and regulations that would protect and promote the rights of
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passengers.
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Sec. 7. Duties of the Commission. -  The Commission shall have the following
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duties:
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1, Evaluate the current laws, rules and regulations on passenger protection and
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safety, and make recommendations in relation to its findings to the Secretary'
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of Transportation.


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2. Evaluate the current laws, rules and regulations on passenger protection and
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safety in emergency situations and during natural calamities/disasters, and
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make recommendations in relation to its findings to the Secretary of
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Transportation.
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3- Evaluate contingency plans that transit providers use across the Philippines
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and identify best practices;
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4. Coordinate with other DOTr agencies as well as law enforcement agencies
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dealing with rail, land, maritime and air transportation to ensure safe, efficient
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and comfortable travel of commuters;
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5. Assist the commuters whenever the safety and efficiency of travel is
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compromised;
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6. Undertake massive commuter education programs for the traveling public to
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know their rights and responsibilities;
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7. Ensure legal assistance for commuters, when the need arises; and
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8. Make recommendations to the Secretary7 of Transportation.
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Sec. 8. Establishment of a Transportation Action Center. -  There shall be
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established a Transportation Action Center (TAC) which shall be in charge of receiving
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and adjudicating passenger complaints. Its headquarters shall be within the office of
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the Department of Transportation.
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The TAC shall have the following powers and duties:
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1. Adjudicate complaints arising from the standards and rights
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established under this Act. The filing of any complaint under
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tis Act shall be without prejudice to any liability for violation
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of any provision of existing laws;
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2. Impose fines not exceeding one hundred thousand (lOO, o o o )
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pesos; and
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3. Recommend the filing of proper action against those who
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commit any violation of this Act to the appropriate agency.


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including, but not limited to, suspension or revocation of 
license and/or franchise;
There shall also be established a TAC Help Desk in all airports and seaports, as 
well as at least one in all cities and municipalities all o\ er the Philippines. The TAC 
Help Desk shall:
1. Answer questions relating to the Passenger Transit Rights 
Acts of 2019;
2. Provide simple solutions to passengers’ concerns; and
3. Assist passengers in filing their complaints with the TAC.
Sec. 9. Non-Diminution of the Rights of the Passengers. -  All other rights of 
passengers provided under existing laws shall remain in full force and effect. Nothing 
herein shall be construed in a manner that will diminish the enjovinent of such rights 
by the passengers who shall have the right to avail of greater rights offered by existing 
laws, including those granted under this Act.
Sec. 10. Appropriations. -  Such amounts as may be necessary to carry out the 
provisions of this Act shall be included in the Annual General Appropriations Act.
Sec. 11. Implementing Rules and Regulations. -  Within ninety (90) days from
18 the approval of the Act, the Department of Transportation (DOTr), in consultation with
19 the Land Transportation Office (LTO), Land Transportation Franchising and
20 Regulatory' Board (LTFRB), Philippine National Railw'ays (PNR), Light Rail Transit
21 Authority (LRTA), Civil Aviation Authority of the Philippines (CAAP) and the Maritime
22 Industry Authority (MARINA), shall formulate the Implementing Rules and
23 Regulations of this Act.
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Sec. 12. Separability Clause. -  If, for any reason, any section or provision of this
26 Act is declared unconstitutional or invalid, the other sections or provisions which are
27 not affected shall continue to be in full force and effect.
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Sec. 13. Repealing Clause. -  All laws, decrees, executive orders, proclamations, 
rules and regulations or parts thereof inconsistent herewith are repealed, amended, or 
modified accordingly.
Sec. 14. Effectivity. -  This Act shall take effect fifteen (15) days after its 
publication in the Official Gazette or in a newspaper of general circulation in the 
Philippines.
Approved,