Beruflich Dokumente
Kultur Dokumente
Land-Based Transport
Governance in the Philippines:
Focus on Metro Manila
Table of Contents
List of Acronyms ................................................................................... 3
I. An Overview of the Philippine Land-based Transportation System ............ 6
II. The Philippine Land-based Public Transportation Policies and Planning
Development ....................................................................................... 8
III. The Philippine Land-Based.............................................................. 13
Public Transport Administration and Management ................................... 14
A. DOTC and the Related Transport Agencies ......................................... 14
B. Budgetary Provisions for Public Transport .......................................... 18
C. Public Transport Route Planning and Fare Adjustments ........................ 19
D. Franchising in Road-based Public Transport Vehicles: Buses and PUJs .... 20
E. Drivers License Issuance and Motor Vehicle Registration ...................... 22
F. Traffic Management and Safe Driving Regulations................................ 23
G. Vehicle Parking Management Regulations .......................................... 24
H. Collection of Motor Vehicle Users Fees .............................................. 26
I. Dealing with Complaints and Feedback from the Public ......................... 26
J. Air Pollution Control ........................................................................ 27
K. Social Protection for the Poor and Marginalized ................................... 29
List of Acronyms
ACBO
ACEC
ACTEX
ACTO
AO
ASBU
AUV
BOT
BPA
CALABARZON
CENRO
CMMTC
CNG
CO
CO2
CSO
DAO
DBM
DENR
DILG
DND
DOE
DOH
DOTC
DPOS
DPWH
DTI
EDSA
EES
EMB
EO
EPS
FEJODAP
GAA
GAD
GCE
GDP
GFI
GHG
GICP
GOCC
GSIS
HUC
IAQIF
ID
IMBOA
IRA
ITS
JEXIM
JICA
KBP
LGU
LRT
LRTA
LTC
LTFRB
LTO
MMC
MMDA
MMTC
MMUTIS
MNTC
MOTC
MPTC
MPTDC
MRR
MRT
MRTC
MTPDP
MTOP
MVIS
NBI
NCR
NEDA
NGO
NGVPPT
NIP
NLEX
NMT
NO2
NSO
OTC
OTS
OSCA
PasangMasda
PhilGEPS
PM
PMA
PNCC
PNP
PNR
PPP
PUB
PUJ
PUV
PWD
RA
RDC
RMC
ROI
ROW
RORO
SCTEX
SLEX
SO2
SSS
TC
TEI
TFB
TIN
TODA
ToR
TRB
TRO
TVR
UN
UVVRP
VOC
Figure 1. Number of registered vehicles by type. Philippines 19902010. Source: Land Transportation Office in DOTC, 2013
Transport in most cities, including Metro Manila, is predominantly roadbased. Metro Manila alone accounts for 31.2% of the 5.1 million total
motor vehicles registered in 2005. The surrounding regions -- Calabarzon
in the south and Central Luzon in the north contribute an additional 1.4
million vehicles, many of which routinely enter Metro Manila daily.
While roads in Metro Manila are paved and well maintained, there are
sections that are poor. The road network is constantly outstripped by the
increase in the demand for road space, primarily due to the rapid
increase in the number of vehicles. Level of service deteriorates fast
during the rainy season, when incomplete and poorly maintained
drainage systems cause flash floods in various sections of the network
making roads impassable except for buses and trucks. An inordinate
amount of time is spent by local governments in Metro Manila and the
national government in improving road conditions, every now and then
undertaking experiments and promulgating new transport policies and
guidelines that are often poorly considered and evaluated as to impact.
The Philippines has various urban public transport modes. Buses and urban
railways (Philippine National Railways or PNR), Light Rail Transit (LRT 1 and LRT
2) and Metro Rail Transit (MRT) cover the longest distances across the
metropolis and the surrounding areas. The public utility jeepney (PUJ) is the
most frequently used mode in Metro Manila and in most urban areas in the
Philippines because of its ubiquity, flexibility, reasonable cost, and traditional
and habitual acceptability. Other public utility vehicles include taxis, FX 2, vans,
2
An FX uses the type known as Asian Utility Vehicle (AUV) which usually has a basic capacity of ten or fewer passengers, is
arranged more like an automobile, but with short row seats at a hatched compartment.
Figure
2.
Metro
Manila
Train
Network,
2014Source:
http://trainguide.ph/
A multicab has a jeepney-like arrangement but seats only twelve passengers. Its fare usually follows the jeepney fare system.
life is still governed from the political and government center, Metro
Manila.
The first law on land transportation in the Philippines, Legislative Act No.
2159, was enacted in February 1912. The law provided for the regulation
and licensing of operators. An Automobile Section under the
Administrative Division of the Bureau of Public Works was also created as
the main implementing agency of the law. In 1932, Act No. 3045
consolidated all laws governing motor vehicles. It also upgraded the
Automobile Section into the Automobile Division. The latter became a
separate agency in 1947, the Motor Vehicles Office. In 1964, Congress
enacted Republic Act 4136, otherwise known as Land Transportation and
Traffic Code, which codified land transportation laws and created the
Land Transportation Commission (LTC) to replace the Motor Vehicles
Office. The LTC established various regional offices throughout the
country in order to effectively carry out its functions. In 1979, the LTC
was renamed the Bureau of Land Transportation (BLT) subsumed under
the Ministry of Transportation and Communication. In 1985, the Bureau
was reverted into a separate Land Transportation Commission. (Guillen
and Ishida, 2003)
Rail transit in the Philippines started during the Spanish colonial period
(1571-1898) when the Ferrocarril de Manila-Dagupan started operation
in November 1892. From the Manila to Dagupan stretch with total length
of 195.4 kilometers, the line eventually grew to cover 479 km from San
Fernando, La Union in the north of Luzon to Legazpi, Albay, Bicol in the
south. The railway system later became the Manila Railroad Company
(MRR) during the American colonial period. The MRR became the PNR in
1960. In June 20, 1964, by virtue of Republic Act No. 4156, the PNR
became an attached agency under the DOTC. Increasing neglect and
competition from road-based transport ended the northern line of the
PNR in the early 1970s. In turn, Typhoons Milenyo and Reming cause
severe damage to the network and this led to the suspension of its
Manila-Bicol services in 2006. In the 1990s, continuous problems with
informal settlers that buil settlements along the railroad tracks further
contributed to the railways decline. In 2007, the Philippine government
started a rehabilitation project aiming to remove informal settlers from
the PNR right-of-way, improve commuter services in Metro Manila,
restore the southern (Manila-Bicol).. In 2009, a new corporate entity with
new rolling stock was inaugurated. As of 2010, PNR has been operating
two commuter rail services in Metro Manila and Bicol (PNR, 2014).
From 1976-1977, Freeman Fox and Associates conducted a study funded
Law
Description
diesel.
Source: Philippine Transport Sector Review: Urban Transport Study,
World Bank, July 2005
A Philippine subsidiary of Metro Rail, the Metro Rail Transit Corporation
(MRTC) was formed for the purpose of designing, constructing, testing,
commissioning, and maintaining the EDSA Rail Transit III, Phase-1
system. This was to be the second rail line in Metro Manila. In September
1997, an Accession Undertaking and an Assignment and Assumption
contract was signed by MRTC with Sumitomo Corporation/Mitsubishi
Heavy Industries, Inc. Subsequently, an amended turnkey contract was
signed between the parties. This led to the sub-contracting of civil works
to EEI Corporation and rail vehicle supply to CKD Dopravni System. The
MRT kept the services of ICF Keiser Engineers and Constructors, Inc. to
provide program management and technical oversight of the services for
the design, constructions management and commissioning of the EDSA
rail system, which was designated the MRT3. The agreements gave MRTC
all rights and obligations to the Project during the debt repayment period
and established it as the Project borrowing entity.
The design, construction of the EDSA rail transit system became MRTCs
responsibility. This included the supply of the light rail vehicles, track,
signalling, communications, power distribution, and the furnishing of
other necessary equipment, facilities, and spare parts. MRTC was also
responsible for constructing the necessary civil works for the system
including fixed guide-ways, passenger stations, power substations, LRV
storage depots and maintenance facilities, and other facilities required to
make the light rail transit system operational.
DOTC exercised the technical supervision of the project activities covered
by the contract between DOTC and MRTC, and inspected and checked
whether the project was constructed in accordance with the approved
plans, specifications, standards and costs during the construction phase.
The services of SYSTRA, a French consultancy firm, with technical
competence, experience and track record in the construction and
operation of railway systems was employed for this by the Department
(DOTC, 2014).
After completion, Metro Rail was obligated to lease the system to DOTC,
which would operate the system, with Metro Rail providing the
maintenance. DOTC was required to pay rental fees to Metro Rail, to
include fees for repaying the loans taken out to finance the Project
(Debt Rental Fees).
In 1999, the Philippine Clean Air Act was enacted. While this national
policy has significant impact in reducing vehicle pollution, there was
12
13
who walk and cycle. This ordinance also made the Bike to Work Loan
Program, possible which gives residents who live within a range of 2 km
from the City Hall to avail of loans for bicycles at zero interest rate
(Magtoto, 2012). Furthermore, there is the Bike-to- Earn Loan Program
to help the poorest of the poor collect recyclable materials from houses
through the Green Heart padyak (pedicab) program under the Pasig
City Environment and Natural Resources Office (CENRO).
The most extensive local project that promotes NMT is the Marikina City
Bikeways Project which received a US$ 1.3 million funding from the
World Bank through the Global Environmental The most extensive local
project that promotes NMT is the Marikina City Bikeways Project which
received a US$ 1.3 million funding from the World Bank through the
Global Environmental Facility (WPRO, 2014). The Project led to the
creation of the Marikina Bikeways Office. Marikina City has a total of 52
km of bikeways available in both major and minor routes, making
Marikina a bicycle-friendly city from 2002 to date. The Marikina City local
government also launched a bike loan program for its employees through
Ordinance No. 92, Series of 2004. The 2006 Traffic Management Code,
Ordinance No. 133, Series of 2006 of Marikina provided for safe cycling,
the use of bikeways, and defined penalties for non-compliance.
In the University of the Philippines in Quezon City, the administration
allowed a one-way traffic scheme in its Academic Oval to give space for
joggers, pedestrians and cyclists.
It is important to note though, that the revisions of any public transport
policies, whether national or local, require a consultation with
stakeholders. This is so since the government has been trying to
integrate citizen and civil society participation in its agenda of
participative governance. The consultation process involves a lot of
lobbying and debates in Congress, local legislative councils, and in the
levels within. The process involved in formulating any policies can start
from experts and/or public consultation recommendation or can be
initiated by politicians or local government units.
Table 2. The
Responsibilities
Philippine
Land-based
Transport
Organizations
Operatio
Polic
n/ Other
Econom Technic
y
Function
ic
al
s
and
Regulation
Entity
Land
Transport
- Infrastructur
e
DPWH
TRB
PNCC
LGUs
MMDA
Private
Transport
Service
DOTC
LTFRB
LTO
OTC
Private
IMBOA,
FEJODAP,
FTODAP, etc
Remarks
In
charge
of
roads and public
works
Regulate
toll
roads
Original
franchisee
of
North
Luzon
Expressways and
South
Luzon
Expressways
Operation
Management of
city roads
Reviews
proposed
investments
in
its role under a
RDC
Consulting
&
construction
firms
Also
enforces
transportation &
traffic laws
For
transport
cooperatives only
Common carriers
Transport
industry
associations
Traffic
15
Management
MMDA
LGUs
Rail Transport
Transport
Infrastructure
and service)
DOTC
PNR
Also serves as
land
use
&
transportation
coordinating
body in Metro
Manila
Operates LRT 3
O&M
for
suburban rail
LRTA
Consulting
&
construction
firms
Source: Philippine Transport Sector Review: Urban Transport Study,
World Bank, July 2005
16
19
franchise issued by the LTFRB. The Manila Trial Court did not issue a
TRO, however, since it found the Manila Resolution not in conflict with
LTFRBs franchising regulation (Santos 2013).
Philippine policy encourages private sector engagement in the delivery of
transport infrastructure and services. The country relies heavily on
public-private partnerships. The private sector finances the construction
of roads, train systems, buses, jeepneys, tricycles, and facilities for these
transport modes. The private sector is also encouraged to improve the
quality of transport services especially through more energy efficient and
environment-friendly designs.
An example of a national policy which provides a platform for the private
sector to take a crucial role in the transport sector is the RA No. 6957 of
1990 which is An Act Authorizing the Financing, Construction, Operation
and Maintenance of Infrastructure Projects By The Private Sector, and for
Other Purposes (see Republic of the Philippines 1990) and its
amendments in RA No. 7718 (see Republic of the Philippines 1994). One
example of a DOTC Public-Private Partnership (PPP) project is the
construction of the Integrated Transport System Project: Southwest
Terminal aimed to have a centralized, intermodal and integrated bus
terminal system which aims to improve the mobility of people and the
traffic situation inside Metro Manila road network by consolidating all
existing 85 terminals scattered all over the inner core of Metro Manila to
[three] central terminals located at the fringes of Metro Manila (MMDA,
2010).
Private companies apply for bus franchises and approval is based on
RMC. The LTFRB issues Certificates of Convenience to Operate Public
Land Transportation Services. Memorandum Circular No. 2011-004
enumerates the terms and conditions for application of franchise by
operators of public utility vehicles (PUVs). An operator applying for a
franchise must be a Filipino citizen (or if a corporation, 60% of the shares
must be Filipino-owned) and must be able to prove financial capability to
operate public transport services. There must also be public necessity for
such service. (Kilusang Mayo Uno v. Garcia G.R. No. 108584, Dec. 22,
1994, Philippine Laws Library 2014).
The LTFRB regulates public transport services such as buses, jeepneys,
taxis, and AUV express. LTFRB decides on fares. This is done through an
assessment of the petition of any individual or group who wishes to
adjust the fare matrix. The Board conducts a study involving the social
and economic aspects of such adjustments through public consultations,
hearings and network analyses. The Supreme Court has a decision that
there must be a 12% return of investment (ROI). Mostly, the proposals
for fare hike from the bus and jeepney operators are mostly triggered by
increases in fuel prices and vehicle spare parts. Operators and their
21
persons to attest to the applicants identity and age. A certificate of nonregistry from the National Statistics Office (NSO) or local civil registry
must also be submitted. An applicant may also submit other government
documents to prove his/her age passport,
Government Service
Insurance System (GSIS) ID, Social Security System (SSS) ID or any
government-issued ID (LTO, 2012).
An applicant for professional or non-professional license undergoes a
medical examination and a drug test to determine his/her physical and
mental fitness. Tests are performed by Department of Health (DOH)
accredited medical facilities which submit the official results of these
tests to the LTO. An applicant also attends a lecture on driving and
should pass the written and practical driving examination. In the case of
an applicant for a professional license, he must have had a Student
Permit for at least five months prior to application. He must also submit a
National Bureau of Investigation (NBI) Clearance, a Police Clearance, or
Court Clearance. Other requirements include Tax Identification Number
(TIN) if employed and a duly accomplished Drivers License Application
Form (LTO, 2012).
The LTO is also in charge of renewing drivers licenses. A student drivers
license is good for one year, while professional and non-professional
licenses are good for three years. Documents required for the renewal of
a drivers license are the expiring drivers license and fresh medical and
negative drug test results from a duly accredited medical facility (LTO,
2012).
LTO is also in charge of the registration of motor vehicles and the conduct
of emission tests. Owners of vehicles for hire or for public transportation
must submit valid Certificate of Public Convenience duly confirmed by the
LTFRB. (For tricycles, a valid MTOP must be submitted.) Vehicles must
also pass the Smoke Emission Test to be qualified for registration.
Owners of vehicles must register their vehicles every year (LTO, 2012).
Traffic Management and Safe Driving Regulations
MMDA and the 17 LGUs in Metro Manila jointly manage traffic in the
metropolis. MMDA functions include administration and implementation
of all traffic enforcement operations, traffic engineering services and
traffic education programs, including the institution of a single ticketing
system (MMDA, 2010). MMDA, through its Traffic Academy also trains
LGU traffic enforcers, shopping mall security guards, barangay officials
and tanods (village peacekeepers) to help in implementing traffic rules.
In the case of Quezon City, for example, there is the Department of
Public Order and Safety (DPOS). There are also similar offices in the
other cities performing traffic management.
The MMDA employs traffic enforcers and metro aides (street cleaners and
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vehicle. The towing service, private or public, is liable for any damage to
the vehicle being towed and for items therein that might be lost.
H. Collection of Motor Vehicle Users Fees
RA 8794 or the Motor Vehicle Users Charge on Owners of All Types of
Motor Vehicles imposes a motor vehicle users fee which is collected for
different transactions related to vehicular registration, drivers license
application and renewal and violations of traffic rules. The fee is based on
the type of vehicle being registered, type of license being applied for or
renewed, or type of offense. Fees for registration also vary based on the
age and weight of the vehicle. These user fees are collected by the LTO.
The law specifies that all fees collected shall be used exclusively for
purposes of (1) road maintenance and the improvement of the road
drainage, (2) for the installation of adequate and efficient traffic lights
and road safety device, and (3) for the air pollution control (Republic of
the Philippines 2000).
All funds collected must be deposited into four trust accounts of the
National Treasury namely: (1) Special Road Support Fund which should
get 80% of the all the monies; (2) Special Local Road Fund which should
get 5% ; (3) Special Road Safety Fund; and (4) Special Vehicle Pollution
Fund which should get 7.5%.
The Special Road Support Fund and Special Local Road Fund shall be
administered by the DPWH and the Special Vehicle Pollution Control Fund
by the DOTC. Seventy percent (70%) of the Special Road Support Fund
must be allocated to the maintenance of and improvement of drainage of
national primary roads and 30% must be allocated to the maintenance
and improvement of secondary roads. The Special Road Safety Fund
supports the installation of traffic lights and other road safety devices
(Republic of the Philippines, 2000).
I. Dealing with Complaints and Feedback from the Public
DOTCs LTFRB and LTO agencies obtain feedback from the public on their
services.
The LTFRB has quasi-judicial powers with which to deal with complaints
against public utility vehicle service providers. LTFRB 2011 Revised Rules
of Practice and Procedure Before the Land Transportation Franchising and
Regulatory Board (LTFRB 2011a) contains specifies the process for filing
and resolution of complaints. Complaints can be filed with the LTFRB
Central or Regional Offices. The LTFRB then will study the merits of the
complaint and decide en banc. Complainants can follow up their case
through the website of the Land Transportation Franchising and
Regulatory Board (LTFRB) which contains the schedules of the hearings
26
(LTFRB, 2014).
Any person can file a complaint with LTFRB. The LTFRB then will study
the merits of the complaint and if warranted schedule hearings.
LTFRB maintains a telephone hotline citizens can use to report erring
drivers and other PUV concerns. It is mandatory for PUBs, PUJs and UV
express vehicles to post a Hows my driving? sign on body of the
vehicle along with the hotline number.
Citizens complain that the hotline number is often inaccessible. On the
other hand, the LTFRB reports that complainants do not follow up their
cases or fail to attend hearings. As a result, cases filed and resolved are
few. In 2012, there were only 482 complaints that reached the LTFRB, of
which only 296 were acted upon (Montecillo, 2012).
The LTFRB has also launched a campaign called Oplan Isnabero against
taxi drivers who provide their services selectively and refuse to convey
passengers with heavy loads or going into heavy traffic areas. LTFRB,
MMDA and LTO traffic enforcement personnel are posted in shopping
malls and PUV/PUB terminals for this purpose (Carcamo, 2012).
The LTFRB also enlist business establishments as partners in collecting
feedback from the public. It has a File a Complaint section in its
website (LTFRB, 2014). Complaints are acknowledged via email.
The LRTs and MRT have customer complaint booths at each station. They
also use social media like Twitter for receiving and responding to
commuter feedback.
J. Air Pollution Control
DOTC reports that of all types of vehicles (land, water, air) motor vehicles
have shown the fastest increase at an average 6.0% annual growth in
the in the last decade. These vehicles emit particulate matters (PM),
sulfur dioxide (SO2), nitrogen dioxide (NO2), carbon monoxide (CO) and
carbon dioxide (CO2). DOTC has also reported that from 1990 to 2007
there has been a 150% increase in greenhouse gas (GHG) emissions
from 10.0 Mt CO2 to 26.55 Mt CO2. Jeepneys which have old diesel
engines constitute 50% of all emissions of particulate matters (PM) in
Metro Manila while motorcycles and tricycles are responsible for 45% of
all volatile organic compounds (VOC) emissions (DOTC, 2014).
The Philippine Clean Air Act of 1999 (RA 8749) passed by the Philippine
Congress and signed into law by the President states that Filipinos have a
27
IAQIF has an Action Plan that was adopted by the DENR in 2000 through Department Administrative Order (DAO)
No. 2000-82 which serves as the blueprint with which all government agencies must comply with to attain and
maintain clean and healthy air (DENR 2000).
8
28
5) Non-motorized
29
The DOTC is tasked to assist senior citizens to fully gain access to public
transport facilities. Each local government has also its own Office of
Senior Citizens Affairs (OSCA) which issues senior citizen identification
cards. Such a card is used to avail of discounts in public transportation.
Alongside senior citizens, pregnant women and women who are
accompanied by very young children, and PWDs are accorded seats in
PUVs as well as in mass transit systems.
Such special treatment is more visibly enforced in the MRT and LRT
compared to PUBs. The first coach of the MRT and LRT, for example, are
reserved for the vulnerable groups. As a matter of policy though not in
practice, at least five seats should be reserved for PWDs in regular PUBs,
four seats in air-conditioned buses near the entrance doors, and two
seats in PUJs (LTFRB, 2011). It is also mandatory that bus terminals and
stations should have wide doors or access for the entry of wheelchairs as
well as the provision of ramps and waiting lounges and benches.
Pursuant to Republic Act No. 7192 (An Act Promoting the Integration of
Women as Full and Equal Partners of Men in Development and Nation
Building and for Other Purposes) and Executive Order No. 348 (Approval
and Adoption of the Philippine Development Plan for Women for 1989 to
1992),
DOTC has taken initiatives to institutionalize Gender and
Development (GAD) in the plans, programs and budget in the DOTCCentral Office, Attached Agencies and Corporations on 03 July 1995
(DOTC 2014). It coordinates these activities with the Philippine
Commission on Women. There is also another office under DOTC, the
Office of Transport Security (OTS) which has sought to reorient its staff
and clientele towards greater gender-sensitivity through the OTS GAD
Focal Point System (OTS, 2013). DOTC also has a Gender and
Development Desk in its website wherein commuters can report cases of
sexual harassment, specifying in which terminal, railway station, airport
and/or seaport. (DOTC, 2013).
Sexual harassment complaints are handled by the Philippine National
Police. The police hotline is 117. A police desk is usually available in the
busiest train stations and bus terminals.
30
latter will also have links to Manila Bays harbor, making easing the flow
of
goods
from
Manilas
industrial
peripheries.
There were no other proposals that seek to connect the two
expressways. However, there are many other solutions put forward to
ease the traffic congestion in Manila. Such solutions range from
infrastructural enhancements (e.g. widening of roads) and alternative
modes of transport (e.g. use of Pasig River ferry service), to cultural
changes, such as shifting towards a 4-day work and school weeks (Manila
Times, 2014).
The NEDA makes the final decision on big infrastructure projects such as
this. All projects costing P300 Million and above are subjected to NEDA
Boards deliberation and approval. This project is a joint venture
agreement between the Metro Pacific Tollways Development Corporation
(MPTDC) and the Philippine National Construction Company (PNCC)
(Diola, 2014).
While approval of the project is made by the NEDA, the implementation
of the project is overseen by MPTDC and PNCC under a joint venture
agreement. The Philippine National Construction Company (PNCC) is the
government agency directly involved in the implementation of the
project.
Big transport projects, or infrastructure projects at the national level are
handled by DOTC, the PNCC, DPWH, or private firms, if bid out. Likewise,
public-private partnerships also exist in these areas. Accountability for
the project rests on the MPTDC and the PNCC as part of their joint
venture agreement.
As this is a Public-Private Partnership (PPP), this project will be jointly
funded by Metro Pacific Tollways Development Corporation (MPTDC) and
the Philippine National Construction Company (PNCC). PNCC will get a
2.5% equity and a 6% share in gross revenues. (Agcaoili, 2014).
Decisions on these projects are released to the public through media
outfits. Projects for bidding are announced in national government
agency websites. Updates on other decisions, such as directives and
orders are also announced, but may not be easily accessible due to a
lack of an organized online archive of such circulars or press releases.
Different government agencies have different websites with different
degrees of activity and updates.
Other projects are funded through the approved General Appropriations
Act, or through loans from institutions such as World Bank, Japan
International Cooperation Agency, and Asian Development Bank. There
may be other forms of funding. As in the
34
Public Utility Projects could be classifies as solicited projects or unsolicited proposals. Solicited projects are
projects which are identified by a government agency or a local government unit as part of their list of
priority projects in line with National Development Plans. These projects are opened for bidding.
35
Traffic congestion is usually the first issue that comes into mind in
discussions of challenges to mobility in Metro Manila. Heavy traffic is
deemed normal, a situation characterized by too many vehicles, with
too few rides (Verzola, 1997: 1 in Gozun 2001). However, according to
the UN Habitat (2013: 8), traffic congestion is a major indication of the
disjuncture between land use planning and transport services. Such a
situation has caused Metro Manila to lose the equivalent of 5% of its GDP
annually. These losses due to traffic account for an annual P15 billion loss
due to lost man-hours, repairs and maintenance and lost fuel (MRT
2012). Added to these are unquantifiable discomforts to commuters and
vehicle owners undergo when they travel through major streets.
But the problems in the transportation sector in countries like the
Philippines are not merely about congestion and seeking solution in
building more roads and flyovers. They are associated with the
crosscutting issues of inequality particularly in income, land-use, urban
planning and the problems of growth associated with middle-income.
Such problems of growth could increase the middle class propensity to
buy housing from private developers like gated subdivisions. These types
of housing reinforce the transport bias (UN Habitat 2013) of mobility
towards private cars since public transport is usually insufficient or
lacking in reaching such exclusive communities.
With the incomes of people in urban areas also increasing, there is also a
higher propensity for people to dream of buying their own cars as
reinforced by both cultural and commercial systems which facilitate the
36
transport in the Philippines are very difficult to achieve given the huge
bureaucracy and the politics involved in policy initiation. This is a huge
challenge particularly to city and municipality government levels to
improve the mobility of people, goods and services. There is an alarming
issue, especially with the construction of huge infrastructure projects
involving road-widening, building new flyovers and connecting major
roads. Such processes usually are not participatory, breeding a lot of
conflicts with affected communities as well as the utility of the projects in
having long-term development impacts. Building more roads which is the
continuous trend in the country, especially in Metro Manila, to
accommodate and solve traffic congestion will eventually lead to more
problems since this will only encourage the acquisition of more privately
owned vehicles in the future.
The transport governance regime in Metro Manila is akin to an
international multilateral negotiation process. There is too much energy
consumed by the straining towards cooperative or coordinative
interoperability of the multifarious agencies concerned. The reality is
that, despite the leadership and command of the President over all of the
executive agencies and local government units concerned, there is a de
facto veto power exercised by any recalcitrant, uncooperative agency
which may actually differ from the rest based on a sound interpretation
of its narrow mandate.
Apart from the transport governance process being subject to too much
agency discretion and lack of inter-agency habits of cooperation, there
are a myriad issues that have remained unresolved over decades,
including informal settlements, right of way acquisition, slow judicial
process in determining transport cases, and lack of sufficient legislation
on traffic and transport issues.
Overall capacity for the enforcement of transport and traffic rules
remains very low. Capacity for transport planning, policy formulation,
enforcement, monitoring, and evaluation is uneven.
Lack of
transparency and accountability pervades the system.
Navigation is by every passing ship rather than by the stars. Tactical
action focuses on managing short term inconveniences in terms of the
traffic jams and the occasional flooded street.
Yet, there are increasing demands on traffic governance performance. As
a commissioned study by AusAid suggests, there is a need for a strong
policy statement to tighten regulatory control on aspects impinging on
safety, environmental quality and level of service, particularly relating to
the transport needs of senior citizens, people with disabilities and
women (KBR 2010: 3). This should involve the active involvement and
participation of stakeholders like car owners, public transport
38
39
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44
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Interviews:
Personal Interview with Engr. Arnel Manresa (2014), Chief Road Planning,
Department of Transportation and Communication, February 28.
Email Interview with Tina Velasco (2014), Consultant, Metropolitan
Manila Development Authority, February 26.
45