TWENTIETH CONGRESS OF THE ) 
REPUBLIC OF THE PHILIPPINES ) 
First Regular Session 
)
25 jiJL-9 P2S2
SENATE 
S. No. 290
R':'
Introduced by Senator FRANCIS N. PANGILINAN
AN ACT
PROVIDING FOR A MAGNA CARTA FOR DIGNIFIED COMMUTING, 
CREATING THE NATIONAL OFFICE OF COMMUTER AFFAIRS, 
APPROPRIATING FUNDS THEREFOR, AND FOR OTHER PURPOSES
EXPLANATORY NOTE
Mobility is a fundamental human right essential for accessing necessities like 
food, healthcare, education, and livelihood. However, Filipinos endure severe mobility 
issues, characterized by severe traffic congestion and inadequate, unsafe, and 
unaffordable public transport.
The Japan International Cooperation Agency (JICA) projected in 2017 that 
economic losses due to traffic congestion in Metro Manila alone could reach Php5.4 
billion daily by 2030 if no interventions are made, significantly higher than the Php3.5 
billion estimated in 2017.1 A 2021 study by the Asian Development Bank (ADB) 
highlighted Metro Manila's public transport as "fragmented and inefficient."2
1Japan International Cooperation Agency (JICA), " JICA and MMDA commence a project on Intelligent Transportation System in 
line with the Comprehensive Traffic Management Plan for Metro Manila." Published on February 21, 2025. Available at 
httDs://www.1ica.ao.lD/enalish/overseas/DhiliDPine/information/Dress/2024/rdsianinQCtmD02212025.html#:~:text=Accordinq%
20to%20a%20freauentlv%20cited.if%20no%20interventiQn%2Qwas%20done. Accessed on July 5, 2025.
2 Asian Development Bank (ADB), "Philippines Transport Sector Assessment, Strategy, and Road Map." Published in October 
2012. Available at httDs://www.adb.ora/documents/DhiliPDines-transport-sector-assessment-strateQv-and-road-maD. Accessed 
on July 5, 2025.


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


TWENTIETH CONGRESS OF THE ) 
REPUBLIC OF THE PHILIPPINES ) 
First Regular Session 
)
25
JUL-9 P2:52
SENATE 
S. No.
290
Introduced by Senator FRANCIS N. PANGILINAN
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AN ACT
PROVIDING FOR A MAGNA CARTA FOR DIGNIFIED COMMUTING, 
CREATING THE NATIONAL OFFICE OF COMMUTER AFFAIRS, 
APPROPRIATING FUNDS THEREFOR, AND FOR OTHER PURPOSES
Be it enacted by the Senate and the House of Representatives of the Philippines in 
Congress assembled:
I
General Provisions
Section 1. Short Title. - This Act shall be known as "The Dignity in Commuting
Act."
Sec. 2. Declaration of Policy. - Recognizing that mobility is a fundamental 
human need, It is hereby declared the policy of the State to guarantee and protect 
the right of each person to travel safely, conveniently, reliably, affordably, and with 
dignity. The State recognizes that mobility is indispensable for persons to enjoy 
fundamental freedoms and access work opportunities and basic services, such as 
health and education.
The State shall afford protection to commuters, and assure mobility of people 
of all ages, physical ability, gender, and economic status. The State shall protect the 
welfare of commuters at all times, especially in decisions related to the provision of 
mobility infrastructure and transportation services.
II
Definition of Terms
Sec. 3. Definition of Terms. - As used in this Act:


1 
(a) Active Transport shall refer to non-motorized means of travel, including
2 
walking or using a bicycle;
3 
(b) Activity Center shall refer to an area in a city or municipality where people
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gather regularly for work, worship, education, social events, trade, exercise, leisure,
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or other similar activities;
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(c) Advance Notice shall refer to the provision of early information regarding
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any consultation with stakeholders at least ten (10) working days prior to such
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consultation;
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(d) Commuter shall refer to a person who needs to travel from one place to
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another, often using a combination of transportation modes;
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(e) Greenway shall refer to a road, street, or path with ample greenery and
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shade where private motorized transport is not allowed, that also serves as
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recreational space or a public park in order to welcome and encourage
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environmentally sustainable transportation modes, especially walking and cycling;
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(f) High-Voiume Transport Corridor shall refer to walkways, paths, roads,
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bridges, streets, or mass transportation terminals where the flow of people is at
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least 2,000 persons per hour per direction during peak travel periods;
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(g) Locai Office shall refer to the Local Office of Commuter Affairs in each city or
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urbanized municipality;
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(h) Micro Mobiiity shall refer to travel using electronic or non-motorized vehicles
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weighing not more than 100 kilograms;
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(i) Mobiiity shall refer to the ability of a person to travel from one place to
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another to conduct daily and extraordinary activities and business;
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(j) Mobiiity Infrastructure shall refer to physical facilities, such as foot paths,
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bicycle lanes, roads, public utility vehicle (PUV) loading/unloading bays, PUV
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terminals, and public transport systems, that support and enhance a person's
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mobility;
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(k) National Office shall refer to the National Office of Commuter Affairs;
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(I) Passenger shd\\ refer to persons who avail public transportation services;
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(m) Private Motorized Transport shall refer to travel using motorized vehicles
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weighing more than 100 kilograms;
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(n) Public Transport s\\d\\ refer to travel using public transportation services;
2


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(o) Public Transportation Service Drivers shall refer to persons who operate
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public transportation vehicles;
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(p) Public Transportation Services shall refer to public sector and franchised
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private sector services that transport people over land or water, including jeepneys,
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PUVs, buses, minibuses, railways, ferries, taxis, and tricycles;
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(q) Public Transportation Service Terminals shall refer to areas where
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passengers (i) board and disembark public transportation vehicles, or (ii) purchase
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tickets for public transportation services;
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(r) Public Transportation Service Vehicles shall refer to the vehicles used to
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provide public transportation services to the public;
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(s) Transport Operators shall refer to persons or entities who provide public
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transportation services to the public;
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(t) Urbanized Municipality shall refer to a municipality in the Philippines where
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the aggregate area zoned as residential, commercial, or industrial exceeds forty
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percent (40%) of the total land area of the municipality; and
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(u) Vulnerable Road Users shall refer to students, senior citizens, and persons
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with disabilities.
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III
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Office of Commuter Affairs
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Sec. 4. National Office of Commuter Affairs. - To administer and implement the
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provisions of this Act, and to monitor and ensure compliance of the country with
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international standards set for mobility, there is hereby created the National Office of
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Commuter Affairs under the Department of Transportation (DOTr), which shall have
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the following functions:
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(a) Coordinate with the respective government agencies dealing with road, rail,
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air, and maritime transportation policy to ensure the safe, efficient, and comfortable
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travel of commuters;
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(b) Operate help desks for commuters;
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(c) Assist commuters whenever the safety and efficiency of travel is
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compromised;
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(d) Undertake massive information dissemination campaigns on commuter
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education;
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(e) Ensure legal assistance for commuters, when necessary; and
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(f) Ensure adequate representation of commuters in any public consultation
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that will impact their welfare and interest.
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The National Office shall be under the direct supervision of an Assistant
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Secretary.
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Sec. 5. Local Office of Commuter Affairs. - To administer and implement this
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Act in the local level, each city and urbanized municipality shall establish its own
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Local Office of Commuter Affairs, which shall be under the direct supervision of the
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city or municipal administrator.
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IV
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Rights of Commuters
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Sec. 6. Right to Adequate Public Transportation Services. - The State shall
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ensure that adequate public transportation services are available to meet the needs
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of commuters. For purposes of this Act, public transportation services shall be
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considered adequate when:
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(a) Public transportation service vehicles are:
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i. sufficient in quantity and frequency, to ensure that commuter waiting
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time at stops and terminals does not exceed ten (10) minutes even
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during peak demand periods;
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ii. accorded priority in the use of road space and traffic signal
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operations, to ensure that commuters are able to traverse fifteen
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(15) kilometers within one (1) hour, including all scheduled stops;
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and
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iii. designed to accommodate all persons, including those with
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disabilities or special needs;
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(b) Public transportation service terminals and stops are:
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i. available within five hundred (500) meters from any residence or
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activity center;
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ii. connected to another public transportation service terminal within
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three hundred (300) meters to promote seamless connectivity of
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travel; and


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iii. properly equipped, adequately sized, weli maintained, and designed
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to promote commuter safety and comfort and accommodate ali
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persons, including persons with disabilities or speciai needs.
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Sec. 7. Right to Affordable Public Transportation Services. - The State shail
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ensure that public transportation services are affordable to the general public.
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Vuinerable road users shall continue to benefit from concessional or discounted
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fares, as provided for by iaw.
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The State shali promote the use of public transportation services by providing
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financial and non-financial incentives to ensure that it is more economical for
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commuters to use public transportation services more frequently than to use private
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motorized transport.
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Sec. 8. Right to Alternative Public Transportation Services. - When pubiic
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transportation services are deficient, the State shail provide alternatives to ensure
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the mobility of the people, including the use of public resources, such as
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government-owned vehicles, and through State charter or lease of private vehicles.
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Sec. 9. Right to Road Safety. - The State shall ensure that road crashes are
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eliminated. The DOTr, through the Nationai Office, shall implement a
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comprehensive road safety program and shail implement the activities under the five
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piliars of the Philippine Road Safety Action Pian, nameiy: Road Safety Management,
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Safer Roads, Safer Vehicies, Safer Road Users, and Post-Crash Response.
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The State shali also promote safe and efficient driving behavior by pubiic
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transportation drivers through mandatory training programs and more stringent
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licensing. The Nationai Office, in coordination with the Land Transportation
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Franchising and Regulatory Board (LTFRB), is hereby mandated to monitor the
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location and speed of public transportation vehicies, and the status of their public
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transportation drivers in reai time, by requiring the instailation of electronic vehicie
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tracking devices and CCTVs. The State shall repeal all laws, rules, and regulations
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which incentivize public transportation drivers in relation to ridership or fare
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revenue, to eliminate dangerous on-street competition and behavior among public
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transport drivers.
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Sec. 10. Right to Proper Mobility Infrastructure. - The State shali provide
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proper mobiiity infrastructure to promote the welfare of commuters. In all
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renovations of existing infrastructure or construction of new infrastructure, the
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improvement of travel time impact on public transport service users, cyclists, and
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pedestrians shall be prioritized.
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Road infrastructure shall be designed and engineered to ensure the safety and
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access of non-motorized commuters, as well as the disadvantaged or vulnerable
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groups. Every road where a speed limit of over 20 kilometers per hour (kph) and
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under 60 kph is imposed shall feature an unobstructed walking path at least 2.5
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meters wide in each direction. Every road where a speed limit of over 60 kph is
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imposed shall feature dedicated bike lanes wide enough to accommodate at least
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two bikes.
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The State shall develop adequate sidewalks and bicycle lane networks that
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encourage 
active transport and provide safe and direct access to priority
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destinations, such as housing, schools, business centers, and public transportation
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terminals. 
Such walking and cycling infrastructure shall be included in 
the
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Comprehensive Land Use Plan of every city and urbanized municipality incorporated
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in the design and implementation of road transport projects at national and local
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government levels. The Local Office of a city or urbanized municipality shall ensure
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that each barangay includes:
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(a) safe, well-protected, and unobstructed community-wide foot paths,
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sidewalks, and bicycle lanes, compliant with universal design guidelines, to enable
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travel around the city or urbanized municipality entirely by foot, bicycle, or other
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forms of micro mobility;
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(b) networks of greenways to promote healthy commuting and encourage active
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transport;
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(c) proper lighting on all roads and footpaths to allow safe travel even after
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dark;
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(d) tactile paving on sidewalks along high-volume transport corridors for the
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benefit of blind pedestrians;
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(e) bicycle racks in every public transportation terminal or stop and activity
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center that can accommodate at least ten percent (10%) of its anticipated users;
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and


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(f) safe intersections and pedestrian crossings, equipped with raised pedestrian
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platforms, highly visible advance warning signages, adequate street lighting, mid-
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crossing refuges, traffic calming, and curb outstands to reduce road pavement
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crossing width.
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The State shall require all government offices and buildings to be equipped
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with shower facilities for commuter use. The DOTr, through the National Office, and
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the Local Offices shall develop and support measures to incentivize the private
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sector to include shower facilities in their respective activity centers.
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Sec. 11. Right to a Fair Share of Pubiic Road Space. - The State shall ensure
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that public road space is efficiently used. Modes of transportation that move more
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people, such as public transportation services, active transport, and micro mobility,
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shall have priority over the use of road space.
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Public road space and foot paths shall not be appropriated or acquired for
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parking, commerce, or other activities which restrict public use of, or access to,
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public roads.
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Sec. 12. Right to Breathe Clean Air During Travel. - In line with the provisions
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of Republic Act No. 8749, otherwise known as the Philippine Clean Air Act of 1999,
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the State shall take measures to ensure that commuters are able to travel using
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public transportation services or active transport without compromising their health,
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by:
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(a) strengthening enforcement measures for private motorized transportation
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and public transportation vehicles to comply with the emission standards set by the
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Department of Environment and Natural Resources and/or the LTFRB, whichever
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affords greater protection for clean air;
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(b) measuring air quality along the major transport corridors in all cities and
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provide this information to the public in real time; and
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(c) activating emergency procedures to reduce public exposure to emissions
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when air quality exceeds safe levels.
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Sec. 13. Right to Information for Efficient and Convenient Travel. - The State
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shall provide timely and adequate information to commuters to enable them to
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develop safe, convenient, and efficient travel plans, including selection of
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transportation modes and routes, by:
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(a) requiring all public transport services to prominently display route maps,
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fares, schedules, and real time vehicle location and availability, in all public
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transportation service terminals and other strategic locations;
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(b) establishing technical standards and regulations for the display of street
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maps at strategic locations in each neighborhood;
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(c) ensuring that all public transportation terminals, ports, and airports have a
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twenty-four (24)-hour information assistance counter to serve commuter needs; and
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(d) ensuring the collection, processing, and availability to the public of data on
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mobility, including geo-referenced data on road crashes, air pollution levels, public
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transportation service travel times.
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Sec. 14. Right to Compensation for Public Transportation Service Breakdowns.
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- The State shall ensure that passengers are compensated in case of service
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breakdowns in public transportation services. During public transportation service
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breakdowns, transport operators shall:
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(a) give passengers a full refund of the fare for the trip affected by the
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breakdown;
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(b) assist the affected passengers in reaching their final destination;
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(c) inform passengers how they will be redirected to their final destination; and
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(d) provide food, water, ventilation, and access to waiting areas and bathrooms
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if the passengers are stranded for more than one (1) hour.
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Sec. 15. Right to Participation in Decision-Making Processes Involving Mobility
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and Public Transportation Services. - The State shall consult commuters and
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consider their welfare and interest in all decision-making processes involving mobility
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and public transportation services by:
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(a) giving commuters, including civil society organizations, advance notice which
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shall contain all relevant information on any proposed policy, regulation, project, or
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service affecting mobility at the local or national level;
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(b) allowing commuters to comment and make suggestions on the proposed
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policy, regulation, project, or service, through official traditional and social media
30 
channels and other similar channels;
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(c) responding to comments and suggestions from commuters within twenty
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(20) working days from receipt; and
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(d) setting public consultation meetings at a time and place that will maximize
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participation from commuters.
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V
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Public Transportation Services and Infrastructure Plan
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Sec. 16. Public Transportation Services and Infrastructure Plan. - Within one-
6 
hundred eighty (180) days from the effectivity of the rules and regulations
7 
implementing this Act, in consultation with relevant government agencies, the
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National Office and Local Offices shall publish a Public Transportation Services and
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Infrastructure Plan, which should satisfy the evolving mobility requirements at the
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national and local levels, respectively. To ensure that these mobility requirements
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are kept up to date, the National and Local Offices shall publish an updated Public
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Transportation Services and Infrastructure Plan on or before December of each year.
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The Public Transportation Services and Infrastructure Plan shall ensure that all
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the rights mentioned in Section V of this Act shall be enforced.
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VI
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Miscellaneous Provisions
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Sec. 17. Implementing Agencies. - In the implementation of the provisions of
18 
this Act, the DOTr shall lead and coordinate the implementation activities of the
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Department of Public Works and Highways, Department of the Interior and Local
20 
Government, Metropolitan Manila Development Authority, and concerned local
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government units.
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Sec. 18. Implementing Rules and Regulations. - The DOTr, in consultation
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with the other implementing agencies and concerned agencies, civil society
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organizations, and stakeholders, shall promulgate the implementing rules and
25 
regulations within one hundred eighty (180) days from the effectivity of this Act.
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Sec. 19. Penalties. -
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(a) Any transport operator whose public transportation service terminals violate
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Sections 6(b)(iii), 13(a), and 13(c) of this Act shall be fined One hundred thousand
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pesos (P100,000.00) for the first offense; Two hundred thousand pesos
30 
(P200,000.00) for the second offense; and Five hundred thousand pesos
31 
(P500,000.00) and suspension of the franchise for a period of one (1) year for the
32 
third and succeeding offenses;
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(b) Any transport operator whose public transportation service vehicles violate
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Sections 6(a)(iii), 9, and 12 of this Act shall be fined One hundred thousand pesos
3 
(P100,000.00) for the first offense; Two hundred thousand pesos (P200,000.00) for
4 
the second offense; and Five hundred thousand pesos (P500,000.00) and
5 
suspension of the franchise for a period of one (1) year for the third and succeeding
6 
offenses;
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(c) Any transport operator or public transportation services driver who fails to
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honor concessional or discounted fares under Section 7, Paragraph 2 of this Act shall
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be fined One hundred thousand pesos (P100,000.00) for the first offense; Two
10 
hundred thousand pesos (P200,000.00) for the second offense; and Five hundred
11 
thousand pesos (P500,000.00) and suspension of the franchise or driver's license for
12 
a period of one (1) year for the third and succeeding offenses;
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(d) Any transport operator or public transportation services driver who fails to
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compensate commuters for public transportation service breakdowns under Section
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14 of this Act shall be fined One hundred thousand pesos (P100,000.00) for the first
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offense; Two hundred thousand pesos (P200,000.00) for the second offense; and
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Five hundred thousand pesos (P500,000.00) and suspension of the franchise or
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driver's license for a period of one (1) year for the third and succeeding offenses;
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(e) Any public transportation service driver who engages in dangerous on-street
20 
competition and behavior under Section 9 of this Act shall be fined One hundred
21 
thousand pesos (P100,000.00) for the first offense; Two hundred thousand pesos
22 
(P200,000.00) for the second offense; and Five hundred thousand pesos
23 
(P500,000.00) and suspension of the driver's license for a period of one (1) year for
24 
the third and succeeding offenses;
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(f) Any person who appropriates or acquires public road space and foot paths
26 
for parking, commerce, or other activities which restrict public use of, or access to,
27 
public roads shall be fined One hundred thousand pesos (P100,000.00) for the first
28 
offense; Two hundred thousand pesos (P200,000.00) for the second offense; and
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Five hundred thousand pesos (P500,000.00) for the third and succeeding offenses;
30 
(g) Any registered owner of private motorized transport or public transportation
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service vehicles who fails to meet the emission standards referred to in Section 12 of
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this Act shall be fined One hundred thousand pesos (P100,000.00) for the first
10


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offense; Two hundred thousand pesos (P200/000.00) for the second offense; and
2 
Five hundred thousand pesos (P500,000.00) for the third and succeeding offenses;
3 
and
4 
(h) Any government official or employee who violates Sections 6, 7, 8, 10, 11,
5 
12, 13, 14, and 15 of this Act shall be fined One hundred thousand pesos
6 
(P100,000.00) for the first offense; Two hundred thousand pesos (P200,000.00) for
7 
the second offense; and Five hundred thousand pesos (P500,000.00) for the third
8 
and succeeding offenses. In addition to these fines, an administrative complaint
9 
may also be filed against government ofRcials or employees who violate this Act.
10 
Sec. 20. Appropriations. - The initial amount necessary for the implementation
11 
of this Act shall be charged against the current appropriation of the DOTr; Provided,
12 
That the fines that may be collected in the enforcement of this Act shall be used
13 
exclusively for its implementation: Provided, further, That such sums as may be
14 
necessary for the continued implementation of this Act shall be included in the
15 
annual General Appropriations Act.
16 
Sec. 21. Separability Clause. - If any provision of this Act is declared
17 
unconstitutional or invalid, the other provisions not affected by such declaration shall
18 
remain in full force and effect.
19 
Sec. 22. Repeating Clause. - All laws, executive orders, administrative orders,
20 
and rules and regulations inconsistent with this Act, are hereby repealed or amended
21 
accordingly.
22 
Sec. 23. Effectivity. - This Act shall take effect fifteen (15) days after its
23 
complete publication in the Official Gazette or in a newspaper of general circulation.
Approved,
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