PTE 413 Urban Transport Planning in the Philippines (Module 2) - Don Honorio Ventura State University - PDF

Republic of the Philippines DON HONORIO VENTURA STATE UNIVERSITY Cabambangan, Villa de Bacolor, Pampanga COLLEGE OF ENGINEERING AND ARCHITECT...

Republic of the Philippines DON HONORIO VENTURA STATE UNIVERSITY Cabambangan, Villa de Bacolor, Pampanga COLLEGE OF ENGINEERING AND ARCHITECTURE Department of Civil Engineering A. Course Code / Title : PTE 413 – Principles of Transportation Engineering B. Module Number : Module 2 – Urban Transport Planning in the Philippines C. Time Frame : Week 2-3 D. Description : This module provides a discussion of the development of urban transport planning and challenges in the Philippines E. Objectives : At the end of this module, the learner should be able to: 1. Define the challenges in Urban Transport Planning in the Philippines 2. Introduce some ideas about transportation planning 3. Cite some studies conducted for transportation planning in different urban cities in the Philippines Contents: OVERVIEW OF URBANIZATION IN THE PHILIPPINES The rapid urbanization in the East Asia and Pacific region requires addressing urban transport challenges to sustain economic and social advantage of the region's cities. Though current programs mainly address urban challenges in the capital cities, there is a growing need to address these issues in other large as well as medium size cities, especially, as most of these cities often do not have well-developed urban transport plans or transport services. The study is part of an Urban Development Program of middle-income countries Indonesia, Philippines, and Thailand that are all dealing with new urban transport challenges caused by rapid urbanization. The Philippines has one of the highest urbanization rates in the region. Based on UN data, 63% of the country's total population lives in urban areas in 2005. The rural population continues to decline as the current trend towards urbanization grows with nearly 70% of the population expected to live in urban areas by 2015. There are presently 33 highly urbanized cities in the Philippines and these cities are experiencing worsening urban transport problems. 1  Transportation problems vary from country to country depending on their social, economic, and political situation. The current and anticipated problems vary on the historical process of urbanization and its present stage of socio-economic development, the extent of motorization, and the level of transport technology. There is no such theory of transport planning that can be effectively applied to any transport problem, but there is an outline of comprehensive urban transport planning based on state-of-the-art practices. Its relevance to the problem of urban transport in developing countries should be studied based about a city in question. Increasing transport demand in developing countries due to a drastic increase in the number of automobiles (motorization) like motorcycles in some cases, rapid urbanization and economic development, and delayed investment in transport facilities particularly for mass transport, are causing serious road congestion problems. Further, in many cases mixed traffic of various means of transportation ranging from non-motorized transport or NMTs (e.g., carts, walking, bicycles) to cars, inadequate traffic rules, and poor traffic management have made very inefficient use of the limited road space, sharing the precious road space with non-transport urban activities. URBAN TRANSPORT CHALLENGES IN THE PHILIPPINES 1) Rapid Urbanization The Philippines is one of the most rapidly growing and urbanizing countries in Asia. The rapid increase in population puts pressure on existing urban transport infrastructure and services especially in urban areas. In 1980, the total population of the country was 48.098 million. Twenty years later, in 2000, the total population of the Philippines became 7 6.504 million. 2  Table 2.1: Population of the Philippines and Metro Manila Table 2.1 presents the population growth rate of the Philippines and Metro Manila. Explosive population growth rate occurred during the period from 1960 to 1970 with a rate of 3.08%. During the same period, Metro Manila experienced unprecedented growth rate at 4.89%. Although the population growth rate of Metro Manila has been decreasing, the national overall rate for the period of 2000 to 2007 is still very high at 2.04%. In 2007, the country posted an even higher population growth rate than Indonesia and Thailand albeit at a decreasing trend over the past decades. Table 2.2 presents the population growth rates of selected countries. The Philippines has one of the highest urbanization rates in the Region. The urbanization rate of the Philippines was around 60% in 2000. This is expected to reach around 77% in 2030 higher than that of Japan, Indonesia, and Thailand. A rapid increase in the proportion of population living in urban areas will require high level of investments in urban transport infrastructure and services. Such investments will also have to compete with demands for other urban services such as housing, health, and education. If urban growth is not managed properly, the quantity and quality of urban services will deteriorate and contribute to a decrease in the overall quality of life. The Philippines currently has 33 highly urbanized cities with high population growth. The 16 cities in Metro Manila are included while the remaining 17 cities are in other regions of the country. For the period of 2000 to 2007, the average population growth rate in Metro Manila cities is 1.92%. Cities outside Metro Manila are growing more rapidly with an average population growth rate of 2.55%. 3 2) Urban Density An analysis on urban density of cities is very useful since it is considered an important factor in understanding how cities function. Urban density is a term used in urban planning and urban design to refer to the number of people inhabiting a given urbanized area. As such, it is to be distinguished from other measures of population density. Studies like Newman and Kenworthy (1989) and Kenworthy and Laube (1999) has strongly influenced urban policy that advocates reduction in automobile use by generating higher population density. The urban densities of highly urbanized cities in the Philippines vary greatly in magnitude. Table 2.4 presents the urban density of cities in Metro Manila. The basis for the calculation of the urban density values is the built-up area of cities as reported in their respective Comprehensive Land Use Plan (CLUP). For cities in Metro Manila, the highest urban density is in Manila City at 66,429 persons per square kilometer. The City of Muntinlupa has the lowest urban density at 11,380 persons per square kilometer. The cities of Mandaluyong, Pasay, Navotas, Makati, and Malabon also exhibit compact configurations. 4  Table 2.5 presents the urban density of cities outside of Metro Manila. General Santos City has the highest urban density followed by Cebu City, both of which have densities over 13,000 persons per square kilometer. Baguio City, notably, has a relatively high urban density along with Mandaue, Zamboanga, and Davao. Puerto Princesa City has the lowest urban density at barely 300 persons per square kilometer. Urban density provides a general measure of the overall demand for urban transport infrastructure and services. A city with a higher urban core density would have greater urban transport development needs including pedestrian facilities and mass transport systems compared to another city with lower urban density but keeping all other factors equal. MOTORIZATION Vehicle registration statistics indicate a nationwide average vehicle registration growth rate of 7.5% annually for the period 2000 to 2008. Vehicle registration in Metro Manila continues to grow at 3.86% annually. Cities like Makati, Pasay, Caloocan, and Pasig have posted negative growth rates while cities that are located at the fringes of Metro Manila have very high vehicle registration growth including Taguig, Valenzuela, and Paranaque. The annual vehicle registration growth rates in cities outside of Metro Manila are higher. Cities like Iligan and General Santos have doubled their number of registered vehicles in less than 10 years. Among the cities outside Metro Manila, only Cebu City has experienced negative growth in annual private vehicle registration. 5  The largest increase in private vehicle registration in the period 2000 to 2008 is attributed to the drastic rise in the number of motorcycles. The number of motorcycle registration in Metro Manila increased at an alarming rate of 2 7.6% annually while all other cities recorded an average of 13.8%. The overall growth rate in the number of motorcycles nationwide is 20.3% annually. 6 PUBLIC TRANSPORT SUPPLY The public transport system in Philippine cities is road-based except in Metro Manila where there is a network of 3 light rail transit lines and intra-city public transport services are mainly provided by public utility jeepneys (PUJ) and tricycles. Based on the LTFRB record of franchises in 2007, there are about 61,800 public utility vehicles operating in Metro Manila. For buses, the average fleet size per operator is about 13.6 while majority of jeepney operators owned only one unit. There are about 73 intra-city bus routes serving Metro Manila with 33 bus routes serving EDSA and the rest on non-EDSA including 17 routes linking Metro Manila to Bulacan, Rizal, Cavite, and Laguna. There are more than 640 intra-city jeepney routes serving the metropolis and about 130 AUV routes serving mainly commercial districts and intermodal transfer points within Metro Manila. Public transport supply data for cities outside of Metro Manila are not readily available because the LTFRB regional offices do not regularly produce this. Local governments also do not produce tricycle statistics. Existing statistics for for-hire vehicle registration, on the other hand, provide useful information. ROAD DEVELOPMENT Almost all cities have road densities higher than the 1km per square kilometer threshold that corresponds to sufficiency of roads. Cities in Metro Manila have generally higher road densities compared to other cities. This also indicates that Metro Manila cities have a comprehensive road network system. 7 TRAFFIC ACCIDENTS The Philippines lacks comprehensive accident studies, but it is generally known that cities in the country face serious challenges in road safety. Metro Manila accounts for one-third of the country's recorded number of fatalities from road accidents in 2002. Pedestrians, especially those below 15 years old, were found to be the most vulnerable group. This is bound to worsen with the implementation of traffic management schemes that favor high speed and weaving maneuvers and poor protection of pedestrians crossing the streets. The state of road safety of the cities can be evaluated based on road traffic accidents. In Metro Manila, the Metro Manila Development Authority (MMDA) maintains the Metro Manila Accident Reporting and Analysis System (MMARAS). Paranaque and Quezon Cities has the highest fatal accident rates per 100,000 people. The cities of Makati, San Juan, and Mandaluyong registered non- fatal accident rates of over 1,000 occurrences per 100,000 people, the highest in Metro Manila. AIR POLLUTION The ambient air quality statistics from the Environmental Management Bureau (EMB) shows a general decrease in TSP concentration in Metro Manila from 1998 to 2006. However, the TSP readings in 2006 are still above the guideline value of 90 ug/ Ncm for one-year average exposure. Historical ambient air quality data for cities outside of Metro Manila generally point to decreasing trend in TSP concentration for selected cities. Several cities have TSP readings above the guideline value; however, the cities of Mandaue, Iloilo, General Santos and Butuan already exhibit TSP levels that are below the guideline value of 90 micrograms per normal cubic meter. ENERGY CONSUMPTION AND CLIMATE CHANGE Increase in motorization as well as reliance on fossil fuels and inefficient vehicle technologies in the transport sector has led to increased emission of carbon dioxide (CO2) and other greenhouse gases (GHG). The continuous release of CO2 and other GHG to the environment beyond the Earth's natural absorptive capacity is accountable for global warming. Global trends suggest that the transport sector is the significant contributor in the overall CO2 and GHG load. There is a clear connection between energy use and carbon dioxide emissions. The latest GHG emission inventory for the country points to a 22% share of the transport sector to the annual CO2 load and 30% share to the total GHG emissions. Severe congestion levels coupled with low fuel efficiency of existing vehicle fleet pose serious GHG emission situations. Recent studies in the country state that the average fuel efficiency is 4.0 km/liter for a PUJ and 3.3 km/liter for a PUB compared with around 12 km/liter for a private car. 8 TRAFFIC CONGESTION A study in 2000 states that time lost due to serious road traffic congestion in Metro Manila amounts to PHPl00 Billion each year. Traffic congestion is especially severe during peak periods where in-vehicle time is rather long. In 1996, the recorded average travel speeds were extremely low at 12 km/h for cars and 9 km/h for buses and jeepneys. The average travel times of bus, jeepney and tricycle users are 79 minutes, 43 minutes, and 17 minutes, respectively. To improve the meet the future travel demand at an improved level of traffic situation than the 1996 conditions, the MMUTIS formulated a "Do-maximum network". The ideal network requires roughly PHP 1,200 billion or USO 30 billion, out of which, PHP 800 billion or USO 20 billion are to be borne by the government. Although the entire "Do_x0002_maximum" network cannot be realistically achieved, this provides national agencies and local government units with a basis for transportation planning beyond 2015. 1) City Development Strategies The City Development Strategy (CDS) is an action plan for equitable growth in cities, developed and sustained through participation, to improve the quality of life for all citizens. The goals of CDS include a collective city vision and action plan aimed at improving urban governance and management, increasing investment to expand employment and services, and systematic and sustained reductions in urban poverty. It is not intended to substitute for integrated master plans, general land use plans, or even investment plans. Rather, it forms the basis for planning of land use, transport, and other sectoral needs and for setting policy, resource allocation, and investment priorities. In 1998, the World Bank and several City Mayors from the Philippines launched the first phase of the CDS Program. After eight years, three CDS phases have been implemented. In addition to the CDS programs, a project preparation grant from the Japanese Government supported several cities in preparing city strategies and project feasibility studies. In all, more than 60 cities have participated in the CDS activities. Through the CDS process, the cities have generated more than 500 priority programs and projects; many of these were funded through the cities own funds, government financial intermediaries, official development assistance, central government transfers, and the private sector. 2) National Land Transport Policy Framework With the rising fuel and food prices and other critical issues confronting the land transport sub-sector in the Philippines, Executive Order 712 was issued on 11 March 2008. This directed the DOTC to formulate the National Land Transport Policy Framework (NLTPF). The significance of this undertaking is viewed from the recognition that traditional transport system management concentrated on individual transport modes and physical infrastructure results to disconnected efforts. There is the need to move the country to a more holistic, multi-modal approach to transport policy, planning and investment assessment that compares all feasible solutions and takes full account of social, economic, and environmental factors ('triple bottom line' perspective) as well as to support integrated land transport sub-sector decision-making to stimulate economic activity and act as a driver to poverty alleviation. 3) National Transport Policy and Planning National Transport Policy and Planning (NTPP) is an AusAID-funded initiative under the Philippines-Australia Partnership for Economic Governance Reforms (PEGR). NTPP is a five-year program aimed at supporting the Philippine Government in the formulation and implementation of reforms in various areas of economic governance including reforms in the transport sector. It is expected to provide the foundation and framework for a National Transport Plan and a Medium-Term Public Investment Plan (MTPIP). 9 Metro Manila Transportation Integration Study The Metro Manila Transportation Integration Study (MMUTIS) followed the conventional transport planning process, but also incorporated participatory planning through its planning workshops and consultative activities. MMUTIS formulated and evaluated four scenarios on future urban development patterns. They were in the range from continuation of current trends to strong interventions to decentralize and force growth at the regional level. The study selected Scenario I II that assumed that a transport network would be developed more strategically to encourage the current land use trend to continue, but with more effective land use control and growth management of the urban areas. A transport master plan was developed by MMUTIS based on the chosen scenario. The plan was a product of two rounds of plan testing and evaluation. The first round of network development produced a network that would entail an investment of USD30 billion. Unfortunately, the investment requirement would be as much as twice the possible fund for transport infrastructure estimated even under the high growth scenario. Metro Cebu Land Use and Transport Study The Metro Cebu Land Use and Transport Study (MCLUTS) prepared a structure plan to guide the development of Metro Cebu from 1981 to 2000. A phased program of transportation infrastructure investments had been prepared in the context of the Structure Plan. Included in the short-term plan were transportation system management measures. The strategic planning component of the MCLUTS formulated, tested, and evaluated four basic urban forms, namely: 1) Concentrated without mainland reclamation; 2) Concentrated with mainland reclamation; 3) Linear-dispersed; and 4) Mactan Island expansion. The study has recommended the creation of a development authority, although this has not yet been implemented. However, a project office, the Metro Cebu Development Project, has been established to manage the implementation of the MCLUTS recommendations. Prior to its creation, the Metro Cebu Transportation and Traffic Engineering Office was setup to develop the medium to long-term transport proposals of MCLUTS and implement its short-term recommendations. Transportation and Traffic Management Plan for Davao City The study was primarily undertaken to come up with a transportation and traffic management plan that would meet the travel needs of the rapid urban expansion of the city of Davao. In particular, the study intended to: 1) assess the existing traffic condition in Davao City through compilation of primary and secondary data; 2) design an efficient traffic circulation plan to ensure smooth vehicular and pedestrian flow; 3) identify traffic management measures and alternatives appropriate for the city to alleviate congestion; 4) develop a framework plan for long-term period; and, 5) recommend policy directions to sustain programs for short, medium, and long-term plans. The Davao City Comprehensive Development Plan (CDP) and the Davao Integrated Development Program (DIOP) 22 have provided the medium-term and long-term plans towards the realization of the city's development vision. The DIOP has looked at the metropolitanization of Davao City and its impacts on the Davao Gulf area. On the other hand, the CDP has focused on the city's urbanization and economic growth. Road Network Improvement of Regional Growth Centers The study on Road Network Improvement for Development of Regional Growth Centers was undertaken in 2004 covering Metro Iloilo, Metro Bacolod, and Metro Cagayan de Oro. The objectives of the study were: 1) formulate 10 a Master Plan for the Urban Road Network Development including short-, medium- and long-term implementation programs; 2) carry out a feasibility study for high priority road projects; and 3) enhance the capability of the National Government as well as the Local Government Units for urban road network planning and feasibility study. The study entailed the conduct of the following activities: 1) Socio-economic profiling of the metropolitan areas. 2) Review of transport and traffic conditions. 3) Urban transport and land use modeling. 4) Development of urban road master plans. 5) Feasibility studies on priority road projects. An urban road master plan has been formulated for each study area. No policy issues have been addressed. It is not clear, however, if the master plan that was developed for each of the study area was adopted by the concerned Local Government Unit. LAND USE AND TRANSPORT PLANNING There is a growing need to address urban transport issues in several other large and medium size cities, especially since most of these cities often do not have well-developed urban transport plans or transport services. Except for Metro Manila, Metro Cebu, and Davao City, very few comprehensive urban transport studies have been undertaken for cities, if at all. In terms of local development planning, the Local Government Code of 1991 clearly defines urban planning and management and as a primary responsibility of the local government unit. More specifically, this responsibility includes land use planning and the application of appropriate local development controls that should be consistent with national and provincial plans and policies. The common experience however has been uncontrolled urban development in cities that have resulted to ribbon-type commercial development along major roads, uncontrolled squatting in the coastal areas, and the deterioration of the central business district. High intensity land uses tend to gravitate along national roads and cities oftentimes have failed to be developed appropriate development controls in these areas. As such, these corridors become congested thereby necessitating the construction of bypass roads. FUNDING FOR URBAN TRANSPORT 1) Motor Vehicle User's Charge Republic Act No. 8794 entitled, "An Act Imposing a Motor Vehicle User's Charge (MVUC) on Owners of all types of Motor Vehicles and for other Purposes", otherwise known as the MVUC Law which was ratified in June 2000 stipulates that all monies collected under his law shall be earmarked and used exclusively for road maintenance and improvements of road drainage, installation of adequate and efficient traffic lights and road safety devices, and air pollution control, which shall be deposited to the National Treasury in the following ( 4) Special Trust Accounts, wherein a Road Board was created to manage the said funds in a prudent and efficient manner: 11 (i) Special Road Support Fund. (ii) Special Local Road Fund. (iii) Special Road Safety Fund; and (iv) Special Vehicle Pollution Control Fund 2) Local Funds One of the major reasons why urban transport-related projects do not figure dominantly in the CDP is the absence of transport data on the local level. Because of poor transport sector data, sectoral analysis is difficult and necessary transport projects cannot be identified. On the other hand, there is a need to work closely with LGUs in terms of distilling workable approaches in funding local transport projects. With decentralization, LGUs are envisioned to play a major role in altering the relative attractiveness of urban centers to firms and skilled labor by offering different bundles of local services (most especially infrastructure) vis-a-vis varying levels of local taxes and user charges3 More specifically, LGUs can help affect the cost of doing business through their expenditure as well as regulatory policies and thus, make their jurisdictions more competitive to new investments relative to other locations. 3) Performance-Based Grants The experience of DILG in managing the SLRF is notable as it demonstrates the catalytic impacts of fund allocations that can be channeled to LGUs. Fund allocations can be subject to appropriate levels of monitoring and evaluation with a mix of capacity-building strategies. In the case of SLRF, DILG conducts field visits and dialogues with concerned LGUs. The DILG have also collected useful statistics relating to the urban transport system of LGUs. For example, the SLRF office now maintains an inventory of existing city and provincial roads. These strategies can be supportive in the administration of performance-based grants for urban transport. A closer institutional cooperation setup between the DOTC and DILG will also need to be established. While DOTC is the main policy and planning agency in relation to transport development, the DILG works closely with city governments. While DILG does not have the financial resources to support the urban transport development needs of LGUs, DOTC may be able to provide seed funds to assist LGUs. ENVIRONMENTALLY SUSTAINABLE TRANSPORT The Philippines is committed to identify, promote, and undertake Environmentally Sustainable Transport (EST) strategies and initiatives, in support of national progress and development. In fact, the country is a signatory to various conventions and declarations. The Philippines has undertaken various programs and activities towards achieving sustainable development and addressing climate change since its signing to the United Nations Framework Convention on Climate Change (UNFCCC) Agreement in Rio de Janeiro in 1992. These activities eventually led to the formulation, legislation, and implementation of Republic Act No. 8749 or the "Philippine Clean Air Act of 1999," which 12 provides for environmentally sustainable transport through harmonization of national emission standards with the international standards. The Philippines is also a signatory to the Aichi Statement of 2005 that recognizes, among others, the need for both national and local level governments to develop and adopt integrated policies, strategies, and programs incorporating key elements of environmentally sustainable transport. The Aichi Statement defines these key elements of EST into twelve (12) thematic areas importance): (i) Public health. (ii) Strengthening roadside air quality monitoring and management. (iii) Traffic noise management. (iv) Vehicle emission control, standards, and inspection and maintenance. (v) Cleaner fuels. (vi) Public transport planning and travel demand management. (vii) Non-motorized transport. (viii) Environment and people friendly infrastructure development. (ix) Social equity and gender perspectives. (x) Road safety and maintenance. (xi) Knowledge base, awareness, and public participation. (xii) Land use planning. SIMPLIFIED URBAN TRANSPORT ANALYSIS 1) Road Network Data Road network data, which include information on surface type and surface conditions, are available in different offices in charge of road administration. The Department of Public Works and Highways (DPWH) maintains a regular inventory of national roads, while the DILG, in the office of Special Local Road Fund, keeps an updated inventory of provincial and city roads. There is no central repository of barangay road data as these are usually kept at local planning or engineering offices, or the district engineering offices of the DPWH. 2) Traffic Count Data 13  Traffic counts data are available for some national road’s sections at the DPWH Planning Service Division. Traffic counts for city roads, are commonly not performed except for cities that have prepared local transport plans and have conducted local traffic counts. 3) Motor Vehicle Registration Data Motor vehicle registration data are available at the Management and Information Division of LTO. Data are commonly aggregated according to district offices of LTO and, as such, only give broad indications of the vehicle registration characteristics of cities. Motor vehicle registrations are classified according to vehicle type, ownership type, engine type, and age among others. Electronic data on district office level statistics are however not available for older years. Since paper-based district level data at Management Information Department (MID) are commonly lent out to researchers coming to LTO, pages are sometimes mixed up or have missing sections. These contribute to the gradual demise of the quality of older statistics, and inconsistencies with quality with more recent data. Some motor vehicle registration data are kept and recorded in socioeconomic profile or sectoral profile available at the city planning and development office. 4) Public Transport Data Public transport supply and operations data are critical to the planning of public transport system. Deregulated public transport in the country has contributed to the absence of centralized data collection system for public transport system particularly on the level of passenger ridership. The number of passenger utility vehicle units and buses that are for hire is available from LTO and gives an indication of the supply, while operational data like routes, fare, and operating units are available from LTFRB. Franchising for other public transport modes like tricycles and pedicabs are performed by the LGUs. 5) Traffic Accident Data Data on road accidents are important for road safety planning. Two of the main sources of traffic accident data in the country are the Traffic Accident Reporting and Analysis System (TARAS) and Metropolitan Manila Accident Reporting and Analysis System (MMARAS). TARAS started in 2004 and is integrated by DPWH. MMARAS started in 2002 and is maintained by MMDA. Both systems make use of a computer software and recording procedure of traffic accidents involving local traffic enforcement units. Details on traffic accidents are recorded in TARAS forms, processed into the database, and are submitted to the DPWH district offices. MMARAS, on the other hand, is operated under the Metropolitan Road Safety Unit (MRSU) of the MMDA Traffic Operation Center (TOC) with the cooperation of the Traffic Enforcement Group of the NCR Police office of the PNP. 6) Transport Funding The level of investment and the source of financing urban transport investment are necessary in determining the capacity and efficiency of LGUs for financing urban transport programs and projects. Majority of city transport investment data are only available at the local budget or treasury office. These data can be expected from detailed Statement of Income and Expenditure accounts that often come in raw form. Data integration is often done according to the minimum requirements and standard format of the Bureau of Local Government Finance (BLGF). The data format is commonly in aggregated form and do not specifically identify, for instance, details of economic services expenditure which may partially cover transport investments. Some data on road maintenance expenditure are, however, available at the central office level. 14