Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. ____ 
Introduced by HON. LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR. 
EXPLANATORY NOTE 
According to the Philippine Chamber of Commerce, heavy traffic in the National Capital 
Region (NCR) caused around 3.5 billion daily economic loss in the country.1 On top of this, 
commuters continue to struggle with the inefficient mass transportation system especially 
during peak hours. We have witnessed congested public vehicles, inaccessible transport 
stations, and long commuter lines.  
In 2020, Amsterdam-based TomTom International showed that Philippines ranked fourth as 
the most congested country in the world. 2 This material condition has caused stress and 
exhaustion to our commuting public that is mostly composed of workers from nearby cities 
and provinces. The time wasted with the mass transportation dilemma is supposedly time for 
rest, family, leisure, and other productive activities that would contribute to the workers’ overall 
well-being. Given this context, current mass transportation systems must be reimagined to 
provide safe, convenient, and affordable transport services. The State must also implement 
policy measures that would respond accordingly to the needs of our people with the fast-paced 
urbanization of major cities in the country.  
This bill seeks to create a legal framework enumerating and enforcing the rights of the 
commuting public including the right to mobility regardless of age, gender, abilities, and 
economic status. This bill also aims to establish the Office for Commuter Affairs for smooth 
coordination among concerned agencies, operationalization of help desks, and adequate 
representation to policy implementation and development of commuters and other 
stakeholders.  
Considering the current dilemma widely experienced by commuters in major cities in the 
country, the approval of this bill is earnestly sought.  
LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR. 
1 https://www.bworldonline.com/economy/2022/05/09/447325/pcci-seeks-immediate-action-on-ncr-
traffic-to-remove-drag-on-
economy/#:~:text=5%20billion%20is%20lost%20daily,our%20transportation%20and%20logistics%20i
ndustry. 
2 https://www.bworldonline.com/editors-picks/2021/01/14/338785/traffic-congestion-in-manila-is-4th-
worst-in-the-world-despite-lockdown/ 
September 27, 2022
10:31 am
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Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. ____ 
Introduced by HON. LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR. 
AN ACT 
PROVIDING A FRAMEWORK FOR A COMMUTER-CENTERED 
TRANSPORTATION POLICY, APPROPRIATING FUNDS THEREFOR, AND FOR 
OTHER PURPOSES 
Be it enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled: 
ARTICLE I 
GENERAL PROVISIONS 
SECTION 1. Short Title. – This Act shall be known as the “The Commuters' Welfare 
Act”. 
Sec. 2. Declaration of Policy. – It is the declared policy of the State to guarantee he 
rights of all sectors, particularly the commuting sector to participate in the policy and 
decision making processes affecting their rights, welfare, and privileges. Mobility is a 
basic human need; commuters have rights to travel safely, conveniently, and reliably. 
Without mobility, citizens are unable to access basic services such as healthcare and 
education, or enjoy fundamental freedoms. Moreover, mobility should be enjoyed by 
people of all ages, abilities, gender, and economic status, not only by those who are 
physically fit, with private motor vehicles or with financial means. 
To attain the foregoing policy, the State shall provide the necessary mechanisms, 
human and financial resources, and legal measures to enable its citizens to enjoy fully 
the rights embodied in this Act. The State also reaffirms the right of all citizens to 
participate in the policy formulation, planning, implementation, management, 
monitoring and evaluation of all institutions, programs, projects and services related 
to upholding the rights of commuters. 
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In all decisions related to the provision of mobility infrastructure and 
transportation services, the welfare of the commuter shall be the paramount objective. 
While the interests of the transportation industry, private motor vehicle users, and 
other stakeholders should also be considered in any decision, these interests should 
be secondary to the welfare of the commuting public. 
 
Sec. 3. Definitions. – For purposes of this Act, the following terms shall mean: 
(a)  "Active Transport" – refers to non-motorized means of travel, including walking 
or using a bicycle. 
(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. 
(c)  "Advance Notice" – refers to the provision of early information regarding any 
consultations with stakeholders, for which the period from the announcement or 
delivery of the invitation to the consultation event will be a minimum of 10 working 
days. 
(d)  "Commuter" – refers to a person that 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 private motorized transport is not allowed, 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 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 100 kg. 
(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 foot paths, bicycle 
lanes, roads, PUV loading/unloading bays, PUV terminals, and public transport 
systems, that support and enhance a person's mobility. 
(j)  
"Private Motorized Transport" – refers to motorized vehicles weighing more than 
100 kg. 


 
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(k)  "Public Transport" – refers to public sector and franchised private sector services 
that transport people over land or water, including jeepneys, UVs, buses, 
minibuses, railways, ferries, taxis and tricycles. 
(l)  
"Urbanized Municipality" – refers to a municipality in the Philippines where the 
aggregate area in the municipality zoned as residential, commercial or industrial 
exceeds 40% of the total land area of the municipality. 
 
ARTICLE II 
RIGHTS OF COMMUTERS 
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. Public transportation services and 
infrastructure plans and programs should be prepared and updated on an annual basis 
in order to satisfy the evolving mobility requirements in our communities, especially in 
urban areas. 
It will be the responsibility of metropolitan authorities and local government units 
to measure, analyze and update the mobility requirements in each locality and to 
develop plans and programs to address the mobility requirements of their citizens. 
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 travel around the city entirely by 
foot, bicycle or by other forms of light mobility; 
(b)  Public Transport services are available within a 500-meter walk from any 
residence or activity center in a city; 
(c)  Public Transport services are connected to another public service within a 
300-meter walk to promote seamless connectivity; 
(d)  Public Transport services are in sufficient quantity and frequency so that 
commuter waiting time at stops and terminals do not exceed 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 15 kilometers within 1 hour, including all 
scheduled stops; 


 
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(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 20 kph and under 60 kph shall feature 
dedicated pedestrian infrastructure, in the form of an unobstructed walking 
path of at least 2.5 meters wide in each direction; 
(h)  Every road with a speed limit of under 60 kph shall feature dedicated bike 
lanes which are wide enough to comfortably accommodate at least two bikes 
side by side; 
(i)  
Transport services are inclusive, so that they are 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 
are not excluded from their use. 
(j)  
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 modes at large expense to 
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 and reliable, while remaining affordable to the general public. 
Concessional or discounted fares shall be offered for disadvantaged or special 
groups (i.e., students, senior citizens, persons with disabilities, poor households). The 
State shall provide subsidies to compensate for discounts offered to special or 
disadvantaged groups. 
The State shall reward the use of Public Transport via financial and non-financial 
incentives to promote the frequent use of Public Transport. The State shall ensure that 
it is more economical for commuters to use Public Transport more frequently rather 
than less frequently. 
The State shall apply financial and non-financial disincentives to reduce the use 
of private motorized transport. Funding earned from such disincentives must be 


 
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utilized for funding of Mobility Infrastructure in favor of Active Transport and Public 
Transport. The State shall ensure that it is more economical for commuters to use 
Active Transport or Public Transport more frequently than to use private motorized 
transport.  
During periods when transportation services are deficient, the State shall employ 
alternative approaches for enabling additional mobility options for its citizens, including 
through the use of public resources to fill temporary gaps in services, such as through 
government-owned vehicles or through the government charter or lease of private 
vehicles. 
The State will promote safe and efficient driving behavior by Public Transport 
drivers through mandatory trainings and more stringent licensing. All Public Transport 
vehicles will be required to install electronic vehicle tracking devices and CCTVs that 
will enable concerned authorities to conduct real-time monitoring of vehicle location, 
vehicle speed, and driver status. Dangerous on-street competition and behavior 
among Public Transport drivers shall be eliminated through the removal of any 
incentive for drivers that is related to ridership or fare revenue. Streets must 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 for Pedestrians, Cyclists and Persons with 
Disabilities. – The State shall accord priority to the development of adequate 
sidewalks and networks of bicycle lanes that encourage Active Transport and that 
provide safe and direct access to priority destinations such as housing, education, and 
business centers as well as Public Transport nodes. 
The State shall ensure that all Public Transport stops are accessible to persons 
with disabilities and impaired movement. The State shall ensure that ease of access 
by pedestrians especially at Public Transport stops and government facilities is 
prioritized over mobility of private motorized transport. 
The State shall 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. The State shall ensure that the Comprehensive Land 
Use Plan of every city includes the development of a city-wide network of safe 
sidewalks, bicycle lanes, and roads lanes to enable travel around the city entirely by 
foot, bicycle or by other forms of light mobility. 


 
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The State shall ensure that travel by walking or cycling is no 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 vehicle would have enjoyed a more direct trip. 
The State shall require all government offices and buildings to have shower 
facilities for the use of commuters. If these buildings receive citizens in the delivery of 
front-line services, these shower facilities must be open to the public. The State shall 
offer incentives to private sector for the provision of shower facilities in their offices 
and buildings. 
In Philippine cities and urbanized municipalities, the State shall ensure that the 
infrastructure of each barangay includes: 
(a)  Safe foot paths or sidewalks, free of obstructions, well-protected from 
automobiles, compliant with universal design guidelines, and accessible by 
pregnant women, elderly, and persons with strollers or wheelchairs; 
(b)  Networks of greenways to encourage active transport modes (walking and 
cycling) 
(c)  Proper lighting on all roads and footpaths to allow safe travel even after dark; 
(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 such as provision of raised 
pedestrian platforms, highly visible advance warning signages, adequate 
street lighting, mid crossing refuges, traffic calming for motorized vehicles and 
curb outstands to reduce road pavement crossing width. 
 
The State shall not require parking for cars to be built in any buildings, and shall 
encourage commercial development and the built environment to accommodate non-
car travel. The State shall promote light mobility by requiring that buildings provide 
bicycle racks that can accommodate 10% of the anticipated users of any building. 


 
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The State shall adopt the Vision Zero in road safety and ensure that road crashes 
are eliminated particularly those of vulnerable road users. The State shall implement 
a comprehensive road safety program and will allocate funding to implement activities 
under the five pillars of the Philippine Road Safety Action Plan namely Road Safety 
Management, Safer Roads, Safer Vehicles, Safer Road Users, and Post-Crash 
Response. The State must also create a National Road Safety Unit under the 
Department of Transportation and must also implement a national road crash 
database for road safety planning. 
 
Sec. 7. Right to a Fair Share of Public Road Space. – The State will ensure that 
public road space is used in a manner that delivers the greatest socio-economic 
benefit. The State shall ensure that safety of road users, especially non-motorized and 
vulnerable users, shall be prioritized over the mobility of motorized modes of transport. 
The State shall employ treatments to the design, engineering and operation of road 
infrastructure in order 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 (e.g., public transport, walking, cycling, etc.) 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 above the needs of private motor vehicles. Public 
Transport shall have priority use of road space over private motor vehicles. 
The State will ensure that there is no private appropriation of public road space 
and foot paths 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 measures 
to ensure that commuters are able to travel using Public Transport or active transport 
(walking or cycling) without compromising their health. 
The State shall ensure that all Public Transport vehicles comply with the emission 
standards set by the Department of Environment and Natural Resources (DENR), 
Department of Trade and Industry (DTI), and/or the Land Transportation Franchising 
and Regulatory Board (LTFRB), whichever is more stringent. 


 
9
The State shall provide programs which reduce the volume of motorized vehicles 
to reduce vehicle-related pollution emissions. The State shall also provide facilities 
and programs which support and incentivize the use of cleaner alternative fuels. 
Recognizing that non-exhaust emissions make up a significant portion of total pollutant 
emissions and that the levels of such emissions are dependent on vehicle weight, the 
State shall provide programs that encourage the reduction of average vehicle weight 
and encourage citizens to commute using cycling or other lighter vehicles. 
The State will measure air quality along the 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 from the World 
Health Organization, the State will activate emergency procedures with the aim of 
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 will 
provide timely and adequate information so that commuters are able to make good 
travel plans and choices about modes and routes. The State shall make publicly 
available information on all Public Transport services, including route maps, fares, 
schedules, and real time vehicle location and availability, for the convenience of 
commuters. The State shall ensure that such information is prominently displayed at 
all stops of public transport services and at other locations deemed necessary or 
beneficial to commuters. 
The State will establish technical standards and regulations for the display of 
street maps at strategic locations in each neighborhood, for the reference of residents 
and visitors. 
The State will ensure that, at all ports, airports, and terminals, a 24-hour 
information/assistance counter will be available to serve the needs of travelers. 
The State shall establish a National Transport Data and Planning Center 
(NTDPC) which will collect and process the mobility data for evidence-based transport 
planning which can quickly adapt to the evolving mobility requirements in our 
communities. The NTDPC shall ensure that data in aid of policy and research on 
mobility be open and be made available to the public. These kinds of data include 
reliable and accurate road crash data in http://roadsafety.gov.ph, air pollution levels, 
and Public Transport routes and travel time information, among others. 


 
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Sec. 10. Right to Special Attention During Service Breakdowns and to 
Compensation for Deficiencies in Service. – The State shall ensure that, in case of 
a breakdown in a Public Transport service, passengers will be entitled to receive from 
the transport operator a full refund of the fare and assistance in securing onward 
journeys. 
Stranded passengers should be informed in a timely manner about how they will 
be redirected to their final destination. If onward journeys are unavailable for more 
than one (1) hour, the transport operator should provide food, water, and access to a 
waiting area with restrooms and ventilation. 
Any student or employee should not be penalized for arriving late by their school 
or employer if the reason for their tardiness was a disruption in a Public Transport 
service. 
 
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. To this end, commuters have a right to advance 
notice and information on any proposed policy, regulation, project or service at local 
or national level that affect their mobility, including full details on how they will be 
affected by the proposed initiative. Affected commuters have a right to provide their 
comments and suggestions of the proposed initiative. Affected commuters must 
receive a response to such comments from the concerned public official within 20 
working days. 
If a public consultation will be held regarding any initiative affecting the mobility 
of commuters, the consultation meeting shall be held at a time, even on a weekend or 
after office hours, and at a convenient and accessible venue that will maximize the 
participation and feedback from affected commuters. In parallel, commuter feedback 
shall be solicited through social media and other channels for information exchange. 
 
ARTICLE III 
INSTITUTIONAL MECHANISMS 
Sec. 12. Establishment of the Office of Commuter Affairs. – An Office of Commuter 
Affairs shall be established at the Department of Transportation (DOTr) at the national 
level, as well as in all city and municipal government units. The Office of Commuter 


 
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Affairs shall be under the direct supervision of an Assistant Secretary at the national 
level, and a city/municipal administrator at the local level. 
 
Sec. 13. Functions and Responsibilities of the Office of Commuter Affairs. – The 
Office of Commuter Affairs shall be tasked to perform the following functions and 
responsibilities: 
(a)  Coordinate with the respective government agencies dealing with road, rail, 
air, and maritime transportation policy to ensure safe, efficient and comfortable 
travel of commuters; 
(b)  Operate Help Desks for the riding public; 
(c)  Assist the commuters whenever the safety and efficiency of travel is 
compromised; 
(d)  Undertake massive commuter education programs for the travelling public to 
know their rights and responsibilities; 
(e)  Ensure legal assistance for commuters, when necessary; and 
(f)  
Ensure adequate representation of commuters in any public consultation that 
will impact on the welfare and interest of commuters. 
 
Sec. 14. Implementing Agencies. – The Department of Transportation (DOTr), the 
Department of Public Works and Highways (DPWH), the Department of Interior and 
Local Government (DILG), the Metropolitan Manila Development Authority (MMDA), 
Department of Environment and Natural Resources (DENR), Department of Trade and 
Industry (DTI), and concerned local government units shall be the Implementing 
Agencies for this Act, with DOTr as the lead implementing agency with responsibility 
for coordinating and monitoring all implementation activities. 
The State shall ensure that the core concepts of this framework are integrated in 
the annual government budget process. The State shall ensure that compliance with 
the provisions of this Act are included in the annual performance targets of all relevant 
national and local government agencies. The State shall ensure that the Implementing 
Agencies will annually be allocated budget to strengthen organizational capacities and 
to sufficiently fund the establishment and operations of the NTDPC, the Office of 
Commuter Affairs, and other related offices. The State shall ensure that relevant 
technical standards, guidelines, and manuals of national and local agencies are 
amended to incorporate all requirements under this Act. 


 
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Sec. 15. Implementing Rules and Regulations. – Within one hundred and eighty 
(180) days from the effectivity of this Act, the DOTr and the other implementing 
agencies will prepare the implementing rules and regulations (IRR) of this Act, with the 
participation of non-government organizations, civil society organizations and 
academic institutions that champion the welfare of commuters. 
 
Sec. 16. Penal Provisions. – Any person or government agency who has found to be 
in violation of any of the provisions of this Act shall be fined not less than Two Hundred 
Thousand Pesos (P200,000) but not more than Five Hundred Thousand Pesos 
(P500,000). 
If the offender is a public official, he/she shall be dismissed from government 
service, in addition to the penalties above stated. 
 
Sec. 17. Separability Clause. – Any portion or provisions of this Act that may be 
declared unconstitutional or invalid shall not have the effect of nullifying other portions 
or provisions hereof as long as such remaining portions or provisions can still subsist 
and be given effect in their entirety. 
 
Sec. 18. Repealing Clause. – All laws, presidential decrees, executive orders, 
memoranda, circulars and other issuances or parts thereof, which are inconsistent 
with this Act, are hereby repealed or modified accordingly. 
 
Sec. 19. Effectivity. – This Act shall take effect fifteen (15) days after its publication 
in at least two (2) newspapers of general circulation. 
 
Approved,