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


103 hours due to rush hour traffic.3 Meanwhile, road infrastructure rarely considers 
the needs of pedestrians, cyclists, or persons with disabilities, further limiting 
accessible travel.
Safety is another pressing issue. According to the United Nations, more than 32 
people die each day in the Philippines due to road crashes.4 Drivers of public utility 
vehicles are forced to compete for passengers under the boundary or commission- 
based system, encouraging reckless behavior. Further adding to these concerns is the 
worsening air quality suffered by Filipinos. Studies have found that in 2019, air 
pollution was responsible for more than 66,000 deaths in the country.5
Hence, this bill seeks to address these longstanding mobility issues through a 
shift in national policy. It proposes prioritizing public and active transportation, such 
as walking and cycling, in the allocation of road space. It calls for infrastructure 
development that maximizes the use of limited public space through high-occupancy 
and space-efficient transport systems. It also aims to end unsafe practices in public 
transport operations and to recognize the rights of commuters to accessible, reliable, 
convenient, affordable, and dignified transport.
Ultimately, this bill envisions a transportation system that promotes economic 
growth, environmental sustainability, and inclusive development where mobility is not 
a privilege, but a guaranteed right for all.
In view of the foregoing, the immediate passage of this bill is earnestly sought.
JOE^ILLANUEVACJ^
TomTom Traffic Index 2024. Available at https://www.tomtom.com/trafflc-lndex/ranking/ (Accessed on 03 July 
2025).
UN Philippines. The UN Special Envoy for Road Safety calls for law enforcement and promotion of gestures that 
save lives in the Philippines. 13 April 2023. Available at https://phlllppines.un.org/en/227552-un-special-envoy- 
road-safety-calls-law-enforcement-and-promotion-gestures-save-lives (Accessed on 03 July 2025).
CREA. Estimating the Health & Economic Cost of Air Pollution in the Philippines. 06 February 2023. Available at 
https://energyandcleanair.org/publication/cost-of-air-pollution-in-the-philippines/ (Accessed on 03 July 2025).


TWENTIETH CONGRESS OF THE 
)
REPUBLIC OF THE PHILIPPINES 
)
First Regular Session 
)
SENATE 
Senate Bill No.
of tjip fernrtarj-'
25 AUG-7 PC13
RECEIVED BY;
Introduced by Senator JOEL VILLANUEVA
AN ACT
PROVIDING FOR A MAGNA CARTA OF COMMUTERS
Be it enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled:
1 
SECTION 1. Short Title. - This Act shall be known as the "Magna Carta of
2 
Commuters."
3 
SEC. 2. Declaration of Policy. - The State hereby recognizes mobility as a
4 
basic human need. Without mobility, citizens are unable to access basic services, such
5 
as healthcare and education, or enjoy fundamental freedoms. Thus, the State shall
6 
ensure that mobility is enjoyed by people of all ages, abilities, and economic status,
7 
and not only by those who are physically fit, with private motor vehicles, or with
8 
financial means.
9 
The State further recognizes the right of the commuters to travel safely,
10 
conveniently, and reliably. To this end, the State shall develop and establish mobility
11 
infrastructures and transportation services aimed at promoting the welfare of
12 
commuters and improving their mobility. The welfare of commuters shall also be the
13 
paramount objective in all decisions related to the provision of mobility infrastructures
14 
and transportation services.
15 
The State further guarantees the rights of all citizens, including the commuter
16 
sector, to participate in the policy formulation, planning, implementation.


1 
management, monitoring, evaluation, and decision-making processes involving all
2 
programs, projects, and services affecting the rights and welfare of commuters.
3 
To attain the foregoing policy, the State shall provide the necessary mechanisms,
4 
human and financial resources, and legal measures to enable its citizens to fully enjoy
5 
the rights embodied in this Act.
6 
SEC. 3. Definition of Terms. - For purposes of this Act, the following terms
7 
shall mean:
8 
a) Active Transport refers to non-motorized means of travel, including walking or
9 
using a bicycle;
10 
b) Activity Center refers to a place in a city or municipality where people gather
11 
regularly for work, worship, education, social events, trade, exercise, leisure, or
12 
other common interests and purposes;
13 
c) 
Advance Notice refers to the provision of early information regarding any
14 
consultation with stakeholders, for which the period from the announcement or
15 
delivery of the invitation to the consultation event will be a minimum of ten (10)
16 
working days;
17 
d) 
Commuter refers to a person who needs to travel from one place to another,
18 
often using a combination of transportation modes to get to his/her destination;
19 
e) 
Greenway refers to a road, street, or path with ample greenery and shade where
20 
motorized transport is not allowed, and that also serves as recreational space or
21 
a public park in order to welcome and encourage environmentally sustainable
22 
transportation modes, especially walking and cycling;
23 
f) 
High-Voiume Transport Corridor refers to walkways, paths, roads, bridges,
24 
streets, or mass transportation terminals where the flow of people is at least two
25 
thousand (2,000) persons per hour per direction during peak travel periods;
26 
g) Micromobiiity refers to travel using electronic or non-motorized vehicles weighing
27 
not more than one hundred (100) kilograms;
28 
h) Mobiiity refers to the ability of a person to travel from one place to another to
29 
conduct daily and extraordinary activities and business;
30 
i) 
Mobility Infrastructure refers to physical facilities, such as footpaths, bicycle
31 
lanes, roads, public utility vehicle (PUV) loading and unloading bays, PUV
32 
terminals, and public transport systems that support and enhance a person's
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mobility;
j) 
Private Motorized Transport refers to privately-owned motorized vehicles 
weighing more than one hundred (100) kilograms;
k) 
Public Transport refers to public sector and franchised private sector services 
that transport people over land or water, such as jeepneys, utility vehicles (UVs), 
buses, minibuses, trains, ferries, taxis and tricycles; and
l) 
Urbanized Municipality refers to a municipality in the Philippines where the 
aggregate area in the municipality zoned as residential, commercial, or industrial 
exceeds forty percent (40%) of the total land area of the municipality.
SEC 4. Right to Public Transportation Services that Satisfy Commuters'
Mobility Requirements. - The State shall ensure that adequate public transportation
services are available to meet the needs of its citizens in the most prompt, convenient,
and accessible manner possible.
The State shall ensure that:
a) 
Every town and municipality will have a community-wide network of safe 
sidewalks, bicycle lanes, and roads to enable safe and convenient travel around 
the city entirely by foot, bicycle, or by other forms of light mobility;
b) 
Public transport services are available within a five hundred (500)-meter walk 
from any residence or activity center in a city;
c) 
Public transport services are connected to another public service within a three 
hundred (300)-meter walk;
d) 
Public transport services are in sufficient quantity and frequency so that 
commuter waiting time at stops and terminals does not exceed ten (10) minutes 
during peak demand periods;
e) 
Public transport is accorded priority in the use of road space and traffic signal 
operation so that it is able to traverse fifteen (15) kilometers within one (1) hour, 
including all scheduled stops;
f) 
Public transport services are supported by properly-equipped, adequately-sized, 
and well-maintained terminals and stops, with attention to the safety and comfort 
of commuters;
g) 
Every road with a speed limit of over twenty (20) kilometers per hour (kph) and


1 
under sixty (60) kph shall feature dedicated pedestrian infrastructure, in the form
2 
of an unobstructed walking path of at least two-point-five (2.5) meters wide in
3 
each direction;
4 
h) 
Every road with a speed limit of under sixty (60) kph shall feature dedicated bike
5 
lanes which are wide enough to comfortably accommodate at least two (2) bikes
6 
side by side;
7 
i) 
Transport services are inclusive, so that they are conveniently accessible to
8 
persons of all ages and abilities. Public transport infrastructure and vehicles shall
9 
be designed and implemented so that persons with disabilities or special needs,
10 
including senior citizens, are not excluded from their use; and
11 
j) 
In all renovations of existing infrastructure or construction of new infrastructure,
12 
preserving or improving the travel time impact on public transport, bicycles, and
13 
pedestrians shall be prioritized over preserving or improving travel time impact
14 
on private motorized transport. The State shall generally avoid the
15 
implementation of projects that produce a positive impact on the travel time of
16 
users of private motorized transport at the expense of public transport, bicycles,
17 
and pedestrians.
18 
SEC. 5. Right to Safe, Convenient, and Affordable Public Transport
19 
Services. - The State shall ensure that public transport services are safe, dignified,
20 
convenient, comfortable, easily accessible, and reliable, while remaining affordable to
21 
the general public.
22 
Concessional or discounted fares shall be offered to disadvantaged or special
23 
groups, such as students, senior citizens, and persons with disabilities, in accordance
24 
with law. The State shall endeavor to provide subsidies or incentives to compensate
25 
for discounts offered to special or disadvantaged groups other than the incentives
26 
provided under existing laws.
27 
The State shall ensure that it is more economical for commuters to use public
28 
transport and promote its frequent use through financial and non-financial incentives.
29 
During periods when transportation services are deficient, the State shall employ
30 
alternative approaches to enable additional mobility options for its citizens, including
31 
the use of public resources to fill temporary gaps in services, such as government-
32 
owned vehicles or through government charter or lease of private vehicles.


1 
The State shall also promote and ensure safe and efficient driving behavior by
2 
public transport drivers through mandatory trainings and more stringent licensing.
3 
Streets shall also be designed in accordance with international best practices in
4 
road safety design to reduce the occurrence of dangerous driving behavior.
5 
SEC. 6. Right to Infrastructure of Pedestrians/ Cyclists, and Persons
6 
with Disabilities. - The State shall ensure that roads are accessible to persons with
7 
impaired mobility, among others, and that adequate and appropriate bicycle lanes are
8 
available. For this purpose, the State shall:
9 
a) Accord priority to the development of adequate sidewalks and networks of bicycle
10 
lanes that encourage active transport, and provide safe and direct access to
11 
priority destinations and services, such as housing, education, business centers,
12 
markets and grocery stores, and public transport;
13 
b) Ensure that all public transport stops are 
accessible to persons with disabilities
14 
and impaired movement, including 
senior 
citizens;
15 
c) Prioritize ease of access by pedestrians, especially at public transport stops and
16 
government facilities, over mobility of private motorized transport;
17 
d) 
Ensure that safe and adequate walking and cycling infrastructure is incorporated
18 
in the design and implementation of road transport projects at national and local
19 
government levels;
20 
e) 
Ensure that the comprehensive land use plan of every city includes the
21 
development of a city-wide network of safe sidewalks, bicycle lanes, and road
22 
lanes to enable travel around the city entirely by foot, bicycle, or by other forms
23 
of light mobility; and
24 
f) 
Ensure that travel by walking or cycling is not less direct to destinations than
25 
travel by private motorized transport. No commuter shall be made to travel above
26 
or below street level to cross any street or intersection if it is possible to
27 
implement an at-grade crossing. No commuter, when traveling by walking or
28 
cycling, shall be made to diverge from his or her route of travel if a commuter
29 
traveling by private motorized transport would have enjoyed a more direct trip.
30 
In cities and urbanized municipalities, the State shall ensure that the
31 
infrastructure of each barangay includes:
32


1 
a) 
Safe footpaths or sidewalks, free of obstructions, well-protected from
2 
automobiles, compliant with universal design guidelines, and friendly and
3 
accessible to pregnant women, elderly, and persons with strollers or wheelchairs;
4 
b) 
Networks of greenways to encourage active transport modes;
5 
c) 
Proper lighting on all roads and footpaths to allow safe travel even after dark;
6 
d) 
Tactile paving on sidewalks of high-volume transport corridors for the benefit of
7 
pedestrians who are blind;
8 
e) 
Bicycle racks in every transportation hub or terminal and in every commercial,
9 
community, and activity center. Such racks shall be provided at street level, if
10 
possible, and at most, one level above or below the street; and
11 
f) 
Safe intersections and pedestrian crossings including the provision of raised
12 
pedestrian platforms, highly visible advance warning signages, adequate street
13 
lighting, mid-block crossing refuges, traffic calming for motorized vehicles, and
14 
curb extensions.
15 
In addition, the State shall promote light mobility by requiring that buildings have
16 
adequate bicycle racks that can accommodate ten percent (10%) of the anticipated
17 
users of such building.
18 
SEC. 7. Right to a Fair Share of Pubiic Road Space. -The State shall ensure
19 
that public road space is used in a manner that delivers the greatest socioeconomic
20 
benefit. The State shall also ensure and prioritize the safety of road users. For this
21 
purpose, it shall ensure that the design, engineering, and operation of road
22 
infrastructure are appropriate to achieve the goal of road safety and access for non-
23 
motorized and vulnerable users.
24 
Because roads are a scarce public asset, the State shall ensure that road space
25 
is prioritized for modes of travel that move more people and maximize the productivity
26 
and social benefit of the public asset. The planning and design of roads must prioritize
27 
the needs of pedestrians, micromobility users, and public transport users. Public
28 
transport shall also have priority use of road space over private motorized transport.
29 
The State shall ensure that there is no private appropriation of public road space
30 
and footpaths for parking, commerce, or other activities that will restrict public use of,
31 
or access to, the road.
32 
SEC. 8. Right to Breathe Clean Air during Travel. - The State shall take


1 
measures to ensure that commuters are able to travel using public transport or active
2 
transport without compromising their health.
3 
The State shall ensure that all public transport vehicles comply with the emission
4 
standards set by the Department of Environment and Natural Resources (DENR),
5 
Department of Trade and Industry (DTI), and/or the Land Transportation Franchising
6 
and Regulatory Board (LTFRB).
7 
The State shall also formulate and implement programs and policies aimed at
8 
encouraging citizens to commute using cycling or other lighter vehicles, thus reducing
9 
vehicle-related pollution emissions. The State shall provide facilities and programs
10 
which support and incentivize the use of cleaner alternative fuels, other types of
11 
renewable energy, and electric vehicles.
12 
The State shall measure air quality along major transport corridors in all cities
13 
and provide this information to the public in real time. When air quality exceeds safe
14 
levels according to internationally accepted standards, particularly those set by the
15 
World Flealth Organization, the State shall activate emergency procedures with a view
16 
to reducing the exposure of the public, especially the young and the elderly, to unclean
17 
air.
18 
SEC. 9. Right to Information for Efficient and Convenient Travel. - The
19 
State shall provide timely and adequate information so that commuters are able to
20 
make good travel plans and choices about modes and routes. For this purpose, the
21 
State shall:
22 
a) Make publicly available information on all public transport services, including
23 
route maps, fares, schedules, real time vehicle location and availability, and traffic
24 
situation, for the convenience of commuters;
25 
b) 
Ensure that such information is prominently displayed at all stops of public
26 
transport services and at other locations deemed necessary or beneficial to
27 
commuters;
28 
c) Establish technical standards and regulations for the display of street maps at
29 
strategic locations in each neighborhood, for the reference of residents and
30 
visitors; and
31 
d) 
Ensure that at all ports, airports, and terminals, a twenty-four 
(24)-hour
32 
information and assistance counter will be available to serve the needs of


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


1 
Management, Safer Roads, Safer Vehicles, Safer Road Users, and Post-Crash
2 
Response.
3 
SEC. 14. Implementing Agencies. - The DOTr, DENR, DTI, Department of
4 
Public Works and Highways (DPWH), Department of the Interior and Local
5 
Government (DILG), Metropolitan Manila Development Authority (MMDA), and other
6 
metropolitan councils, shall be the implementing agencies ofthisAct, with DOTr as the
7 
lead implementing agency with responsibility to coordinate and monitor all
8 
implementation activities.
9 
The foregoing agencies shall include in their respective budgets funds for the
10 
effective implementation of this Act.
11 
Within two (2) years from the effectivity of this Act, all concerned government
12 
agencies, including local government units, shall ensure that relevant technical
13 
standards, guidelines, and manuals are amended to incorporate the requirements of
14 
this Act.
15 
SEC. 15. Pena! Provisions. - Any person in violation of any of the provisions
16 
of this Act shall be fined not less than Ten Thousand Pesos (P10,000.00) but not more
17 
than Five Hundred Thousand Pesos (P500,000.00).
18 
If the offender is a public official, he/she shall be dismissed from government
19 
service, after due process, and suffer the penalty of perpetual disqualification from holding
20 
public office.
21 
SEC. 16. Implementing Rules and Regulations. - Within one hundred and
22 
eighty (180) days from the effectivity of this Act, the DOTr and the other implementing
23 
agencies shall, in consultation with relevant government agencies and other
24 
stakeholders, promulgate the implementing rules and regulations (IRR) for the
25 
effective implementation of this Act.
26 
Failure of the relevant government agencies to promulgate the IRR within the
27 
specified period shall subject the heads of these government agencies to
28 
administrative penalties under applicable civil service laws.
29 
Should the IRR contain provisions that are contrary to this Act, the heads of the
30 
government agencies responsible for such provision, when done in bad faith or with
31 
gross negligence, shall be held administratively liable.


1 
SEC. 17. Separability Clause. - If any portion or provision of this Act is
2 
declared unconstitutional, the remainder hereof or any provisions not affected thereby
3 
shall remain in force and effect.
4 
SEC. 18. Repealing Clause. - Any law, presidential decree or issuance,
5 
executive order, letter of instruction, rule, or regulation inconsistent with the
6 
provisions of this Act is hereby repealed or modified accordingly.
7 
SEC. 19. Effectivity. - This Act shall take effect fifteen (15) days after its
8 
complete publication in the Official Gazette or in a newspaper of general circulation.
Approved,
10