Baguio City - Toolkit for Local Governments on Developing

Baguio City
A series of consultations with the stakeholders in Baguio City indicates that one of the most pressing concerns
with regard to transport in Baguio City is the congestion and vehicle population increase resulting from
increasing population. According to the Baguio City Environment and Parks Management Office, 62% of the
total carbon dioxide emissions in the city is attributed to the transportation sector. More than half of the
motor vehicles likewise use diesel fuel due partly to the topography of the city. The challenges in limiting the
volume of vehicles on the road are further aggravated by the following: (a) the lack of parking management
strategy to effectively reduce the private vehicles, and to ensure space for the loading and unloading zones of
public utility vehicles; (b) the inadequacy of infrastructure for non-motorized transport and public
transportation, including the inefficiency of the system of the existing ones, to encourage motorists to shift to
such modes of transport; (c) compliance of public utility vehicles and private vehicles to vehicle emission
standards, and; (d) lack of implementing body and authority to manage all transport and traffic operations,
rules and standards, engineering, and education of public transport operators. A participatory workshop with
the stakeholders indicates that they primarily have a desire for the city to have a decongested central
business district, a more efficient public transport system, and a better infrastructure for non-motorized
transport. This provides an initial basis for directing two policy options for Baguio City: the creation of
Transport and Traffic Management Office which shall be the sole body to administer all matters relating to
transport and traffic, and the amendment of Ordinance Numbered 7-84, or otherwise known as the Traffic
Code.
I.
Introduction
Possessing a pleasantly cool climate, Baguio City is one of the most popular travel destinations in the
Philippines, especially during the summer months of April and June. It is located 251 kilometers north of
Manila by road and 41.8 kilometers by air, and is surrounded by land within the province of Benguet. The
surrounding terrain around Baguio is rugged and sloping, dotted with hot springs, and cut by rivers that drain
into many valleys. The city, composing of 129 barangays, is bounded to the north by La Trinidad, to the east
by Itogon, and to the south and west by Tuba. The total land area of Baguio was originally 48.9 square
kilometers, but this has been increased to 57.49 square kilometers in 1969 pursuant to Republic Act 3092 of
the Revised Administrative Code. With City Hall as a point of reference, the land area of Baguio extends 8.2
kilometers from east to west and 7.2 kilometers from north to south. The city has a perimeter of 30.98
kilometers.
Similar to the rest of the western half of the island of Luzon, Baguio has wet and dry seasons of equal
duration, but it experiences heavy rainfall because of its high elevation. Baguio is the highest city in the
Philippines, with elevation ranging from 900 meters along the Bued River to 1600 meters at Pacdal. Majority
of the slopes are gentle to moderately steep with a mean slope of 36%. About 1,060 hectares in the city have
slopes less than 20%, while approximately 20 hectares have slopes of 0-10% (level to nearly level).
Baguio City had a population of 226,883 in 1995, and recorded a total number of 252,386 people in May
2000, indicating a 10.1% increase in the duration of five years. In August 2007, this number hit the 300,000
mark, with population registering at 301,926. By 2010, the population reached318,676. The population
increase from 2000 to 2010 represented an annual population growth rate of 2.36% (National Statistics
Office, 2013). The population in 2011 was 334,280. Table 1 and Figure 1 outline and illustrate the increase
of the population from 1980 to 2011.
Table 1: Total Population of Baguio City, 1980 to 2011
Census
1980
1990
1995
2000
2007
2010
2011
Total Population
(in thousands)
84.5
119.0
226.9
252.4
301.9
318.7
334.3
Source: National Statistics Office
Figure 1: Baguio City Population, 1975 to 2011
Source: National Statistics Office
II.
Transport Characteristics
Baguio City is served by metered taxis and jeepneys within the city limits. Various bus operators link Baguio
to the other provinces in Luzon. Vehicle registration trends in year 2010 to 2011 are illustrated in Table 2.
The percentage increase from year 2010 to 2011 of cars was at 6.65%, of SUVs at 21.46%, of buses at 22.35%,
of trucks at 26.35%, and of motorcycle at 27.31%. Most vehicles increased in number except for public utility
vehicles (PUVs). Figure 2 shows the vehicle registration statistics from 2006 to 2011.
Table 2: Vehicle Registration, 2010 and 2011
Year
2010
2011
Car
6,892
7,350
PUV
18,346
17,869
SUV
2,390
2,903
Trucks
2,049
2,589
Buses
85
104
Motorcycles
3,574
4,550
Trailers
58
49
Total
33,394
35,414
Source: Department of Transportation and Communications
Figure 2: Vehicle Registration Trend, 2006 to 2011
Source: Department of Transportation and Communications
There are seven major bus companies serving passengers traveling to and from Baguio City. These provide
transport services mostly in Metro Manila, Ilocos Region, Cordilleras and Cagayan Valley to as far as Zambales
and Quezon Province. Some buses also cater passengers from the mountain province via Halsema Highway‒
La Trinidad Road and other adjoining mining towns of Itogon, Sablan, Tuba and Tublay all in Benguet. Minibuses caters trips from nearby provinces in La union and Pangasinan.
Trip patterns within the city have its usual route from a specific barangay to the central business district
(CBD),and vice versa, because Baguio City is “monocentric” in nature as illustrated in Figure 3. It is further
described in Table 3 where average person-trip length for vehicles is roughly 4 to 5 kilometers from
barangay to the CBD and vice-versa. Public utility jeepneys (PUJ), each of which having an average occupancy
of 18 passengers, dominate the trip-making activity with a mode share of 74% during morning peak hours.
PUJ is one of the most common and one of the cheapest modes of public transportation in the country. Mini-
buses as a mode of public transport are for passengers traveling to the nearby provinces such as La Union and
Pangasinan.
Figure 3: Baguio City’s Central Business District as Monocentric type
Table 3: Travel Activity for Morning Peak Hour, 2012*
Mode
Walking
Car
PUJ
Taxi
Mini-bus
Motorcycle
City-wide mode share
of person trips
Average person-trip
length
(%)
(km)
Average occupancy
(passenger per vehicle
trip)
10.00
8.50
74.00
3.30
2.00
2.00
0.44
4−5
3−4
4−5
70
4−5
N/A
2.64
17.78
2.41
21
1.37
Source: Dr. Mark de Guzman
*The survey was conducted in October 2012 in Naguilian Road-Ferguson Road intersection, where the number of vehicles and the
vehicle types going to the central business district were documented. The number of passengers for each type was simultaneously logged
to determine average occupancy. The average trip length was determined through a survey on motorist perception on their travel time.
Average travel time is 4 to 5 kilometers from home to the central business district is 4 to 5 kilometers because of the monocentric nature
of the city.
The average speed of vehicles in Baguio City during peak hours is 16 kilometers per hour, and 20 kilometers
per hour during non-peak hours. Vehicles in Epifanio Delos Santos (EDSA) highway run at an average speed
of 15 kilometers per hour during peak hours. Comparing the values indicates that traffic congestion is also
evident in Baguio City roads during peak hours.
III.
Issues and Challenges
According to the City Environment and Parks Management Office (CEPMO), 62% of the total carbon dioxide
(CO2) emissions in Baguio is attributed to the transportation sector. Nearly 60% of all motor vehicles use
diesel fuel due to the mountainous terrain of the city. Figure 4 illustrates the trend for diesel fuel use from
2004 to 2011.
Figure 4: Vehicle Fuel Type in Baguio City
Source: Department of Transportation and Communications
Most of the taxis in the city have new gasoline engines running at 11 kilometers per liter. Old diesel engines
run at 9 to 10 kilometers per liter. Table 4 shows the different mode of motor vehicles and its gasoline or
diesel consumption per liter.
Table 4: Gasoline consumption of vehicles from home to the central business district*
Mode
Car/Van/SUV
PUJ
Taxi
Motorcycle
Mini-bus
Bus
Gasoline (km/L)
8−9 (new engine)
8−10
11 (new engine)
30
N/A
N/A
Diesel (km/L)
5
6−10
9−10 (old engine)
N/A
3.3
2.6
LPG (km/kg)
N/A
N/A
0.5
N/A
N/A
N/A
Source: Dr. Mark De Guzman
*Motorists were interviewed on their perception of daily gasoline and diesel consumption.
A series of stakeholder consultations has likewise been held in Baguio City, which gathered representatives
from CEPMO, Transport and Traffic Management Committee (TTMC), Sanggunian Panlungsod, Traffic
Management Unit (TMU) of Baguio City Police Office (BCPO), City Planning and Development Office (CPDO),
Baguio Regreening Movement (BRM), including representatives from the public transport sector such as
Samahan ng mga Taxi- Cordillera Administrative Region (ST-CAR) and Victory Liner, the regional offices of
Department of Health, Department of Public Works and Highways, Environmental Management Bureau of
Department of Environment and Natural Resources, Department of Transportation and Communications, and
Regional Highway Patrol Unit (RHPU),and the academe such as St. Louis University and University of the
Philippines−Baguio.
One of the primary concerns of the stakeholders is the rapid population growth. Baguio City is a highly
urbanized city designed for 250,000 people; however, the current population has already exceeded 300,000,
which has yet to include the tourists entering Baguio City. Having a population that exceeds the carrying
capacity of the city has been observed to contribute to the congestion and hence to the degradation of air
quality primarily as a result of increasing vehicles on the road and their emissions.
Land use plan and mixed use development
The Baguio City government has recently prepared the draft Comprehensive Land Use Plan (CLUP) for the
time period 2010-2020, which is addressing some of the measures that form part of the Avoid-Shift-Improve
framework. The Zoning Ordinances (ZO) and Sectoral Studies that compose the CLUP come as natural
complements of the local Environmental Code Books which have been updated in 2012. Together with
relevant past ordinances that will be detailed below, they constitute the backbone of the local strategy for air
quality management.
The existing Land Use Plan of Baguio City, presented in the latest CLUP1, suggests that so far the city is poorly
developed on mixed use development principles, and that there is a strong segregation of use in the city,
which is probably due to the urban topography. The CBD, commercial areas and the main institutional
buildings are all located in the valley and form a core around which residences spread on dozens of
kilometers in all directions. The 2010-2020 CLUP reformulates the Land Use Plan and proposes only some
changes such as the improvement of commercial areas along major roads that connect this core to the
suburbs, and diversification of commercial and residential areas, as illustrated in Figure 5. This might be
insufficient to reduce congestion as long as people will always need to commute to the central area for work
and shopping and as long as there is no efficient mass transportation system.
1
2010-2020 Baguio City CLUP, Volume 1: Brief Profile of Baguio City, p. 46
Figure 5: Proposed Land Use Plan of Baguio City
Source: 2010-2020 Baguio City Comprehensive Land Use Plan
Parking management
Furthermore, stakeholders expressed the need for better parking management to address the congestion
inside the CBD and in other busy roads. In Baguio, one of the most pressing concerns is the illegal parking
along some streets such as Harrison, Session Road, Magsaysay, while some vehicles in other areas are parked
encroaching into the sidewalks. (Roads are further reduced by illegal loading and unloading of passengers of
PUVs, and vehicle maintenance services such as repair and car-wash are also done on the streets)
Parking management can be considered as a short-term and one of the simplest strategies to avoid traffic
congestion and air pollution. Strategies are often determined in terms of supply of parking spaces relative to
the number of vehicles or in terms of management of the existing parking facilities to ensure that they are
efficiently used(Litman, 2013). In Baguio City, the stakeholders noted that the increase in the number of
vehicles and the resulting congestion and emissions would require a parking management strategy that will
accommodate vehicles more efficiently and more orderly, such as having a central parking station at the
perimeter of the CBD, and will discourage the use of private vehicles, such as imposition of higher charges on
existing facilities.
Stakeholders have suggested that the provisions on parking in the National Building Code have to be
implemented. Broad requirements for parking provision law in the Philippines are set up by laws at the
national level, but local governments are granted some room for manoeuvre to adapt to the local urban
context: “Parking space requirements shall comply with the provisions of the National Building Code and its
Implementing Rules and Regulations which is under the supervision of the City Building Official” 2. Past
ordinances, mainly in the 2000s, have tried to support the requirements. Parking outside official parking
spaces has been made illegal for instance 3. In 2008, to ease traffic on the busiest streets of the city within the
Central Business District, parking has been forbidden on Session Road, Abanao Street and Upper Mabini
Street from 6a.m. to 9a.m. and from 4p.m. to 7p.m., when congestion reaches a peak 4 . The Baguio City
government has also undertaken to make parking management more inclusive vis-à-vis people with
disabilities (PWDs) by reserving parking spots for them 5. This should notably prevent them from roaming the
city in search of a proper spot where they can safely get out of the car (e.g. double parking is dangerous).
The 2010-2020 CLUP identifies parking management as a major issue in the city, notably the lack of parking
spaces for PUJs and the poor respect of required parking provision in big establishments 6. The CLUP however
proposes broad or specific policies to tackle the problem: “strict implementation of the National Building
Code”, “provision of adequate parking facilities”, “regulate parking at CBD roads”, “construction of a pay
parking facility at the Old City Auditorium and at Burnham Park”. Finally, the “identification of loading and
unloading areas [of PUJs] and placing of visible sign boards through the enactment of Parking
Rationalization”7 is meant to allow PUJs parking on specific spots and not on the road.
The biggest challenge remains to be implementation. Lack of police manpower and financial resources
prevents enforcement of such ordinances, as often expressed during the three city visits. The case of
Ordinance Numbered 33 from Series of 2006 is symbolic of such an issue: it officially repeals Ordinance
Numbered 003 (Series of 2000) which had set up on-street parking payment, due to the impossibility to
implement it. Indeed, parking attendants did not have the authority to enforce traffic rules, and notably to
prevent drivers from double parking.
2
2010-2020 Baguio City CLUP, Volume 2 – Zoning Ordinances
Ordinance Numbered 003, Series of 2000
4
Ordinance Numbered 106, Series of 2008
5
Ordinance Numbered 108, Series of 2008
6
2010-2020 Baguio City CLUP, Volume 3: The Sectoral Studies – INFRASTRUCTURE AND UTILITY, p. 4
7
2010-2020 Baguio City CLUP, Volume 3: The Sectoral Studies – INFRASTRUCTURE AND UTILITY, p. 3
3
Public transportation and non-motorized transportation
While the stakeholders have expressed that there could be a central parking station at the perimeter of the
CBD so that the people can utilize non-motorized transit (walking and bicycling) and public transit upon
entry to the CBD, the infrastructure for non-motorized transport and public transportation is not adequate.
One of the primary reasons why PUVs roam the streets of Baguio is because there is no central
terminal/parking for their use. Stakeholders noted that there must be a reduction of units on the road
because the number of jeepneys, for instance, has been estimated to be 4,437. This can be checked by means
of color-coding the operators, i.e. the taxis registered in Trinidad will be colored differently than those taxis
registered in Baguio City. Likewise, alongside the promotion of the shift to public transport, the engines of
PUJs and taxis must be modernized and upgraded to achieve maximum efficiency with lowest possible
emissions.
Shifting to improved walkability, on the other hand, is a strategy that is rising on the agenda of local
governments. If for a long time, it was deemed not being a proper transport mode (unlike motorized vehicles
and mass public transportation), now it is recognized as a central factor of liveability in cities and an essential
aspect of urban mobility. Most of the efforts in Baguio City to improve walkability seem to concentrate on the
greening of the city and the removal of illegal vendors on the streets, which indeed are two real issues in the
city. “The 2010-2020 CLUP reassesses the need to implement the ordinance banning the broiling and vending
of street foods along the CBD8. As far as greening is concerned, Article 13 of Book V (“Biodiversity”) of the
local Environment Code officially states that the months of June, July, August and September of each year are
dedicated to tree planting, in order to improve the liveability of Baguio City, on which walkability highly
depends. The same Book specifies that tree cutting is strictly forbidden unless new seeds replace the old tree.
The 2010-2020 CLUP also plans to make Baguio City a greener city: green corridors are to be built along
major highways9. However, at the image of what Book II (“Land”) of the local Environment Code proposes,
policy strategies remain advice rather than real legal measures: “Reconfiguration shall be implemented in any
of the following concepts: Promotion of other forms of mobility (e.g. walking, cycling); Pedestrianization of
city roads, Road beautification and re-greening; Increasing green areas and decreasing concrete cover; and
Promoting non-pollutive mass transportation system” 10. Other ordinances, such as the ban on smoking in
public areas and more importantly anti-noise pollution targeting notably abusive horning 11, could potentially
increase walkability in Baguio City. Finally, the 2010-2020 CLUP proposes that Session Road be made a
promenade area to limit pollution levels in the CBD 12.
Infrastructure policy however remains the primary lever that can increase walkability. In this perspective, the
Baguio City government has installed new CCTV cameras in the CBD area, notably in Abanao Street, lower and
mid-Session Road, Legarda Road, Magsaysay Avenue and Harrison Road(Fianza, 2009). Such a measure is
multi-purpose and aims to tackle three major issues: crime, littering and illegal obstruction of sidewalks from
parking notably. The CLUP also encourages the “provision of pedestrian walkways as a policy in all major and
barangay streets to promote healthy lifestyle and save on energy costs” 13.
Again, the success of such policies/ordinances depends on their implementation, which in some cases can be
very challenging (for instance, keeping parking spots for PWDs). Other flaws in the local strategy for
walkability can be pointed out. In particular, the decision to reduce the number of pedestrian lanes along
Session Road from 6 to 3, and, according to the Environment Code, traffic endangers pedestrians
there(Fianza, 2011). The second city visit to Baguio City also made another issue surface: the
pedestrianization of Session Road encountered the opposition of local business owners who deem walkability
non-profitable to their business. They indeed consider access for motorized vehicles their best income
opportunity, hence the point of campaigning (cf. Section V) on the economic benefits of walkability. In
8
2010-2020 Baguio City CLUP, Volume 3: The Sectoral Studies – PHYSICAL ENVIRONMENT, page 10
2010-2020 Baguio City CLUP, Volume 1: Brief Profile of BaguioCity
10
BaguioCity Environment Code Book II (“Land”), 2012, page 10.
11
BaguioCity Environment Code, Book III “Air”, Article 8
12
2010-2020 Baguio City CLUP, Volume 1: Brief Profile of Baguio City, page 76.
13
2010-2020 Baguio City CLUP, Volume 1: Brief Profile of Baguio City, page 51.
9
addition, proposals for colored pedestrian lanes for PWDs have been made within the local government
decision structure, but its translation into ordinances is still expected. The decision to create parks is finally
completely independent of the civil society wishes, since only the Mayor and a few City officials can make
such a decision14, which is then more unlikely to happen given the multiple interests the City Hall may follow.
Additionally, bike transit may be more challenging in Baguio City than in any other flat city because of its
sloping terrains. The bikeability of a city indeed depends on its topography, but surely this is not the only
factor that can potentially influence people’s willingness to bike, so encouraging biking or a bike-sharing
system remains feasible. As pointed out during the city visits, bikes in Baguio City are only found in parks,
which suggest that the road network has not adapted to cycling. Despite the 2010-2020 CLUP
recommendation to encourage cycling, it does not properly address both bikeability and the instauration of a
bike-sharing system in the city. If some measures, such as the greening of the city, enforcement of parking
rules and removal of street vendors would, if implemented, benefit both pedestrians and bike users, there is a
lack of infrastructure policy for biking, e.g. bike lanes, bike racks. The bike-sharing system may be actually
harder to achieve simply because users may use the bikes from uphill to downhill only.
Inspection and Maintenance
Stakeholders noted a study that indicates that the average age of the sampled vehicles in the city is around 16
years. DOTC currently limits the age of buses to 15 years, of taxis to 13 years, and of AUVs, multicabs and
vans to 10 years. After a taxi franchise has reached 13 years, the model of the taxi must be replaced. A
pressing concern is the compliance of second-hand vehicles, jeepneys and AUVs to emission standards. In
the case of Baguio City, the age of vehicle is sometimes not as significant as the importance of maintenance of
vehicles, i.e. newer vehicles could be less roadworthy than the second-hand vehicles from another country
where the vehicles have stricter emission limits. Numerous drivers may disregard the inspection and
maintenance of their vehicles until the standard age limit.
Due to inconsistencies in the results of smoke emission test machines, stakeholders also believe that
Roadside Inspection, Testing and Monitoring Team (RITMT) under Clean Air Monitoring Unit (CAMU) of
CEPMO must be the official body that will carry out the function of emission-testing. The local government of
Baguio City has formulated and implemented Ordinance Numbered 61, Series of 2008 entitled “Clean Air
Ordinance of the City of Baguio” which was passed by the Sangguniang Panlungsod ng Baguio on 07 July 2008
and approved by the former City Mayor Reinaldo A. Bautista, Jr. The ordinance included roadside inspections
and monitoring tests of diesel-fed vehicles by the RITMT. These activities found that there is a 54% passing
rate of vehicles, which generated PHP 374,000 in fines in 2010 according to CEPMO. Emission-testing mobile
units have been used to perform random spot-checks on vehicles. There is a limited area for the conduct of
these inspections since there are only two emissions testing machines according to CEPMO personnel. CEPMO
described Baguio City’s Ambient Air Quality as “good to fair” (Cleto, 2010) based on the National Ambient Air
Quality Guideline Values (NAAQGV) shown in Table 5.
14
BaguioCity Environment Code Book V (“Biodiversity), 2012, page 69.
Table 5: Air Quality Management, 2009
Criteria Pollutants
Particulate matter (PM10)
based on 24-hour averaging
Sulfur dioxide based on 24hour averaging
Nitrogen Dioxide Based on
24-hour averaging
Ambient ozone based on 8hour averaging
Carbon monoxide based on 8hour averaging
Minimum
(µg/NCM)
25
Maximum
(µg/NCM)
155
(Dec. 31, 2009)
Standard*,
(µg/NCM)
Air Quality
Indices**
150
Good to fair
4.66
11.50
180
Good
52.57
112.91
150
Good
30.63
71.03
60
Good
none
none
10
No data since the
GFC halted due to
technical problems
Source: Environment Management Bureau, Department Of Environment And Natural Resources – Cordillera Administrative
Region
*The National Ambient Air Quality Guideline Values is a list of hazardous pollutants with corresponding ambient guideline value or
standards necessary to protect public health and safety; and general welfare.
**The air quality indices include a set of pollution standards indices of air quality aimed to protect public health, safety and general welfare.
Implementation and enforcement of corrective measures are also contained at local government level.
Baguio City has recently developed a whole strategy of inspection and maintenance against polluting vehicles,
and has taken responsibility for its operations and implementation. This notably distinguishes Baguio City
from Iloilo City where such responsibilities remain in the hands of the national government. The main
achievement of the local government is the creation of the local CAMU through the CEPMO, via Clean Air
Ordinance. Being trained by national entities (LTO, Technical Education and Skills Development Authority
(TESDA), which monitors testing equipment, and the DENR), CAMU is in charge of carrying out roadside
inspection and monitoring, of managing a public hotline for reports of non-compliance regarding vehicle
emissions, and finally creating a database of smoke belching and other polluting vehicles in the city. Through
its RITMT, CAMU in Baguio City is responsible for the enforcement of emission standards set up at the
national level by the DENR. Comprehensive guidelines on the procedure of smoke emission tests by
government and private firms have been adopted in July 2013 to resolve the discrepancies of test results
conducted by RITMT and private emission testing centers (PETCs). The full guidelines are outlined in Box 1.
1.
Box 1: Guidelines on the Conduct of Vehicle Smoke Emission Tests
as Contained in Memorandum of Agreement
That no vehicle shall be exempt from the RITMT Operations as implemented by the Clean Air Monitoring
Unit (CAMU)-CEPMO with the following guidelines and procedures:
1.1 The City's smoke testing machines have the capability to test all gas, diesel and LPG fed vehicles
whether they are newly released by manufacturers/dealers or overhauled;
1.2 Newly overhauled vehicles that have undergone a general overhaul are afforded a 30 calendar day
grace period, while partially overhauled vehicles are given a seven calendar day grace period,
provided that during the roadside inspection, they are able to present the official receipts from a DTI
accredited and City-permitted auto/mechanic repair shop;
1.3 The PETCs shall maintain a database of all tested vehicles classified accordingly (Type,
Manufacturer, Model, Fuel Type, Owner and Contact address recorded on CR, Current Owner and
Address, RPM, K value, Opacity, Hydrocarbon (HC), Carbon Monoxide (CO), Oxygen (O2), Carbon
Dioxide (CO2), etc.) where the City, through CEPMO, will provide a database form/template for the
purpose of PETC data recording, similar to RITMT-CAMU's database. The PETCs and RITMT-CAMU
shall furnish the CAMU-TWG with a copy of their databases, on a quarterly basis, for the information
of the TWG, to allow objectivity, for purposes of comparison and assessment, and for use as basis in
making recommendations to help facilitate the harmonization process;
1.4 The CEPMO shall furnish all concerned manufacturers/dealers about failed smoke belching test
results of the manufacturers' newly manufactured- released vehicles for their information and
appropriate action; (reckoning date/year of newly manufactured)
1.5 The CEPMO will regularly furnish the DOTC-CAR and the BCPO a list of unclaimed confiscated items
related to RITMT operations, as reference for the issuance of Traffic Clearances.
2.
To resolve the discrepancy of the smoke testing results between PETCs and the RITMT, there is need to
harmonize the system, procedures and standards to be used in testing of vehicles as follows:
2.1 That the TESDA shall require a simultaneous training of PETC and RITMT technicians in the
procedure of emission testing.
2.2 That PETCs should install/activate tachometers in their smoke testing machines and shall be a
requirement by the City for the issuance of a business permit;
2.3 The minimum-maximum RPM standard to be used by both the PETCs and the RITMT-CAMU for
emission testing of diesel-fed vehicles will be as per attached Annex A, prepared by CEPMO and
agreed upon by all concerned;
2.4 That there is a need to synchronize the procedures required by the Clean Air Act (RA 8749) and the
operations manual of the smoke testing machines for precision and repeatability of test results to be
supervised by the CAMU-TWG for both the PETCs and City owned smoke testing machines. (not only
in the manual, see 2.1);
2.5 A simplified protocol of the emission shall be posted by PETCs;
2.6 The PETCs and CEPMO-CAMU/RITMT testing machines used in emission testing should be calibrated
every six months by the EMB-DENR, Central Office or the DTI-BPS accredited calibration laboratory.
Results of calibration of PETC machines shall be furnished to the CAMU-TWG;
2.7 That the City Government of Baguio, through the City Mayor, shall request the approval of DOTC-LTO
Central Office that all vehicles to be registered at the DOTC-LTO Baguio Office shall have their
vehicles tested only by certified PETCs located within Baguio's jurisdiction;
2.8 Refusal of the PETC shall be a cause for denial of business permit or renewal thereof;
3.
All technicians of PETCs and CEPMO-CAMU/RITMT should be TESDA certified – a holder of a Certificate
of Competency (COC) on Service Emission Control System. The City and the PETCs should require their
technicians to enhance their skills through regular upgrading/refresher and assessment evaluation
trainings by TESDA-CAR on test procedures calibration and other updates relative to the implementation
of Clean Air Ordinance and Clean Air Act (RA 8749);
4.
The City will continue to advocate that all vehicle owners undergo regular voluntary testing for the
vehicle owners' monitoring purposes.
5.
The Transport Group, PETCs, and the other stakeholders shall provide one representative each to join,
assist or observe in the RITMT operations for check and balance;
6.
The CAMU-TWG will immediately conduct, on a quarterly basis, parallel emission testing for PETCs and
the RITMT to synchronize testing procedures and results;
7.
Non-compliance of PETCs to the guidelines and procedures is a ground for warning, suspension,
cancellation, and non-renewal of their Business Permit, upon the recommendation of the Technical
Working Group (TWG).
8.
Non-compliance by any of the RITMT team members to the guidelines and procedures, after due process,
shall be ground for warning, suspension and removal from work upon the recommendation of the
Technical Working Group (TWG).
9.
There shall be created a CAMU-Technical Working Group to be headed by the CEPMO composed of the
following agencies and organizations: DOTC-LTO-CAR; EMB-CAR; DTI-CAR; TESDA-CAR; BCPO-Traffic
Management Unit; City Legal Office; Health Services Office; Baguio City Public Transport; ST-CAR; PETCs;
Non-Government Organization-Alay Sa Kalinisan Incorporated.
The CAMU-Technical Working Group having the following functions and duties, to wit:
1. Check and evaluate the credibility of the smoke emission testing machines and technicians and other
pertinent requirements needed in the operations of PETCs and City/CEPMO-CAMU RITMT.
2. Craft a course of action to enhance the synchronized procedures and guidelines for the PETCs and
RITMT.
3. Conduct continuing on-the-spot checking and monitoring of PETCs and CEPMO-CAMU/RITMT
operations and submit findings and recommendations to the City Mayor;
4. Conduct investigations relative to complaints arising on PETCs and City CEPMO-CAMU-RITMT
operations and submit findings and recommendations to the City Mayor;
5. Review and recommend revisions or amendments of the Clean Air Ordinance to render it more
appropriate at all times. Prepare reports, technical and progress reports for the information of the
City Mayor and all concerned functionaries.
Source: Refuerzo, Aileen (July 5, 2013).Gov’t, private transport groups, testing centers adopt rules on smoke emission tests.
Website of Mayor Mauricio G. Domogan, http://mauriciodomogan.com/home/1914-govt-private-transport-groupstesting-centers-adopt-rules-on-smoke-emission-tests.html
Baguio City has also then developed a skilled labor policy to allow good inspection and maintenance of the
vehicles plying through its streets. Owners of the vehicles that fail roadside emission-testing shall be applied
a fee that is gradually increasing should offense be repeated. The said vehicles must then undergo a validation
emission-testing by the CAMU after the necessary maintenance/repair has been undertaken by the vehicle
owner. The validation emission-testing leads to the issuing of a Validation Emission Certificate (CAMU VEC),
which is necessary for the owner to retrieve its vehicle plate and/or its driving license. Polluters must also
follow a seminar conducted by CAMU.
Asian Development Bank (ADB) considers behavioral change strategies as fundamental to the success of any
policy, and air pollution reduction indeed requires such change. Interestingly, the government of Baguio City
has undertaken to do so. The Clean Air Ordinance of 2008, which is also part of the local Environment Code,
has created a Local Clean Air Fund that collects polluters’ fees and testing fees to reuse them to strengthen
the anti-pollution policy of the city. It notably help finance activities of CAMU, help promote clean fuels, help
organize campaign/advocacy on the proper preventive maintenance of motor vehicles to minimize emissions
of air pollutants, and any other program aiming to improve the ambient air quality of Baguio City.
Two limits can be drawn from the city visits and the contents of the Clean Air Ordinance. First, if the
campaign and advocacy for clean air in Baguio City is open to the civil society (as stated in this same
Ordinance), it is only on a voluntary basis, which is not the ideal solution if we consider that the behaviors
need be changed (and thus there is a lack of initial consciousness on the air pollution issue, which should
make people unlikely to volunteer). Second and most importantly, there is a major issue regarding the
presence of PETCs in the city Baguio, which jeopardizes both the authority and the operations of CAMU at the
local level. Two PETCs centers were ordered for one-month suspension in July 2012 and had to pay the
penalty of PHP 30,000 for inconsistencies in testing procedures, while one was ordered for cease of operation
for “falsified test results and non-appearance of vehicle owners during tests”(Agreda, 2012). The reason why
these PETCs have not respected the testing procedures is not clearly stated, but corruption certainly lies
behind. Because the CAMU team is strict on emission standards compliance, people prefer to go to private
centers where they know they can pass the tests in exchange of some extra money, in order to avoid penalty
fees and maintenance/repair of their vehicle. PETCs are however allowed both by the Clean Air Act (national)
and the local Environment Code of Baguio City.
Authority
The Avoid-Shift-Improve framework remains to
be partly followed in Baguio City. Several
measures are being taken to address parking
management and walkability, but the policies
seem to be more scattered than constituting
ambitious programs with funds and proper
implementation. In this perspective, a lack of
implementation strategy is very detrimental to
the policies of the Baguio City government.
Without it, ordinances may remain inked on
paper with no real consequence on the urban
fabric, because local authorities have limited
budget and human resources. The stakeholders
primarily noted the need for a single authority
which will oversee all transport and traffic
issues. There is presently no central office in
Baguio City that manages the transport, traffic
and the traffic personnel.
Concerns of the Stakeholders
CONCERNS
Avoid
Parking
management
REMARKS
Illegal parking on the road, sidewalks, and
on unloading/loading zones. Management
strategy does not discourage private car
use.
Shift
Non-motorized
transportation
Public
transportation
Walkways are not in satisfactory
condition. Wide sidewalks
becomevendors’ paradise.
The engines of jeepneys and taxis must be
modernized and upgraded. No central
terminal/parking for their use.
Improve
Roadworthiness
of vehicles
Emission-testing
centers
Numerous drivers disregard the
inspection and maintenance of their
vehicles until the standard age limit.
Inconsistencies in the smoke emission test
results of PETCs and RITMT
The stakeholders proposed the creation of Transport and Traffic Management Office (TTMO) which, as the
sole body in Baguio City that shall perform all functions related to traffic and transportation management,
shall ensure the fundamental aspects of sound transport and traffic management, namely the enactment and
enforcement of traffic laws, the road and traffic engineering, and the education of drivers and public transport
operators. The TTMO shall also undertake the management of parking in Baguio City. There is a lack of data
on traffic and transportation, including but not limited to the terminals, routes, air quality, pedestrian counts,
and evaluation of existing infrastructures such as the sidewalks and the parking. A study must likewise be
conducted concerning the healthy costs of the pollution in Baguio, and income loss in the tourism sector,
among others, to provide an impetus to the local government.
The existing TTMC presently does not have sufficient authority and budget. According to a stakeholder, there
was a proposed ordinance requesting for the creation of a Traffic and Transport Management Authority
(TTMA) in the past, however, the council cannot obtain a certificate of availability of funds for the personnel
because they have exceeded the 45% ceiling as far as personnel is concerned.
The main achievement nonetheless seems to be the Clean Air Ordinance of 2008 which devolves some
responsibilities to the local level in terms of inspection and maintenance, laying the foundation for the recent
formation of the guidelines on the conduct of smoke emission tests, and which allows financial
decentralization through the Local Clean Air Fund. In the long term, this may allow the city to develop a very
powerful and efficient institutional system to fight polluting vehicles, but only a combination of successful
programs in the three branches of the Avoid-Shift-Improve framework can result in significant air pollution
reduction and improved well-being.
IV.
Visioning and Prioritization
The stakeholder consultations included a visioning exercise which was designed to bring the participants
together in shaping their transportation aspirations for their cities three to five years from the present. The
stakeholders were divided into three groups and were tasked to render their visual representations of their
visions with the use of cut-outs of various transport infrastructure and elements, as illustrated in Figure 6.
The stakeholders shared their vision of having a centralized multi-level parking station outside of the CBD
where people will get off of motorized private vehicles and will begin walking toward their destinations
inside of the CBD. To encourage a shift to walking, an elevated walkway interconnecting all overpasses is to
be constructed. It is to be closed in the evening to deter vendors from setting up on the skywalk. The future
Baguio City that the stakeholders envisioned is predominantly a decongested CBD.
To achieve this, the first group pictured a centralized multilevel parking station and a centralized PUV station including
Stakeholders envision Baguio City
waiting sheds to be constructed at the perimeter of CBD. As
with a decongested central business
passengers alight at the perimeter of CBD, they are to be
district, with a more efficient public
accommodated by an elevated walkway that primarily serves
transport system, and with better
Harrison, Session, Magsaysay, and Ibaraw. The walkway will
infrastructure for non-motorized
interconnect all pedestrian overpasses within the CBD.
transport.
Furthermore, to deter illegal vending and theft, ample lighting
is to be ensured by the use of tempered glass or hard plastic,
and the elevated walkway is to operate only until 9 pm and roll-up doors will be locked at night. To
accommodate people carrying heavy things, trolleys may be provided at the center of the elevated walkway,
which is to be found at intersection of Magsaysay Blvd.
To entirely encourage non-motorized transportation, Session Road is to be pedestrianized on Sundays, or
only a limited number of vehicles is going to be allowed inside the CBD, most of which are to ply through the
major routes only. Ideally, public transport modes that are found at the perimeter of the CBD are adequate to
pick up and drop off passengers from the residential zones. To make the city more accommodating to bike
commuters and to encourage biking as a form of transit and not merely as a form of leisure, bike lanes are to
be placed on the appropriate roads such as those leading to Lake Drive and South Drive. Traffic control
devices are also going to be constructed in more locations to move the motor vehicles, the pedestrians and
the bikers safely.
The second group likewise pictured bus terminals at the perimeter of Baguio
province being served by smaller feeder vehicles, i.e. a relatively smaller mass
transit system, in which passengers are to be transported from these bus
terminals into the CBD. Additionally, stakeholders envisioned that the concept
and operation of bus rapid transit (BRT) system can be replicated by PUJs,
which are going to be upgraded and modernized. The third group noted that,
once the city has shifted to using electricity-run PUJs, charging stations are to
be made available at the waiting sheds and terminals, and an agency is to
regulate the central charging of the jeepneys. The rest of the public transport
modes are to be upgraded, including the triycles that employ two-stroke
engines.
Vice Mayor Daniel Fariñas graced
one of the workshops on Oct. 24,
2012 to give the opening remarks.
The three groups envisioned a Baguio that “heals its people and guests,” is
“clean and walkable,” and is “an environmentally sustainable place to live in
and a world-class tourist destination in 10 years.” They envisioned the
building of a cable car system around the 7.7-kilometer circumference of
Baguio to link it to its neighboring provinces. This system is envisioned to be
the game-changer for the tourism in Baguio City as tourists and residents can
catch sight of the vast lands full of trees and of winding roads.
Figure 6: Visions of the Stakeholders
Prioritization
After discussing the state of urban transport,the detrimental effects of increasing motorization, the
calculation of emissions, the concept of sustainable transportation and the various interventionsbased on the
Avoid-Shift-Improve framework, stakeholders were tasked to identify the policies they intend to prioritize
and the issues they choose to be immediately addressed. They are summarized as follows: (a)creation of
traffic and transportation office and
the preparation of a master traffic
and transportation plan; (b)strict
implementation of the building
code with respect to the provision
of
parking.;
(c)
strict
implementation
of
zoning,
especially school zones; (d) motor
vehicle inspection systems must be
fully operationalized; (e) phasing
out of old vehicles, and strict
regulations on the second hand
vehicles, including imported ones;
(f) education and information
campaign for all stakeholders; (g)
disincentive mechanisms must be
created to discourage people from
purchasing a car, and; (h)
evaluation of existing policies.
Stakeholders discuss the policies during the last city visit.
The consultations were rife with
talk about the creation of the TTMO
that a move was initiated during the
second city visit and signatures of the stakeholders were gathered in support of it. The letter, attached
herewith as Figure 7,was submitted to the office of the Mayor. The following actions plans were decided
upon during the last city visit:
1.
2.
As the Environment Code is being revised, propose a provision to allow for the amendment of
Ordinance Numbered 7-84, otherwise known as the Traffic Code, and for the creation of TTMO. If
approved, have the relevant stakeholders draft the revised version of the Traffic Code and the
inclusion of specific measures that have been discussed during the workshop, which are further
enumerated in this document.
If not approved, draft a stand-alone ordinance concerning the creation of TTMO and ensure that they
be given the responsibility of leading the revision of the Traffic Code.
Figure 7: Request Letter for the Creation of a Transport and Traffic Management Office
V.
Moving Forward
While the Environment Code is presently being amended, the stakeholders have proposed to include
provisions therein for the creation of TTMO for it to have a legal basis should the Environment Code be
approved. Files from other cities with a similar office, such as Cebu City Traffic Operations Management
(CITOM) have also been obtained and forwarded to Baguio City as these could aid in discussing requirements
for personnel, including their qualifications and their functions, and budget. The following provisions have
been submitted for addition in the Environment Code:
Section xx. Upon the approval of this code, Ordinance Numbered 7, Series of 1984,
otherwise known as the Transportation and Traffic Ordinance of the City of Baguio, shall
be amended to update the provisions including but not limited to the Penalties for
Traffic Violations under Article XVI, the Jeepney Routes and Terminals and CBD Parking
Allocation (Intra-city) under Appendix A, and CBD Parking Specification under Appendix
B.
Transport and Traffic Management Office
Section xx. Creation – Transport and Traffic Management Office shall be created to
rationalize the transport system and the traffic flow in the City of Baguio to address the
congestion, the emissions from mobile sources, and the inefficiency in transport sector
service delivery. . Its official abbreviated designation shall be “TTMO.” It shall be an
attached unit under the Office of the Mayor.
Section xx. Composition – TTMO shall be composed of the following key personnel:
a) xx Head
b) xx Technical Staff
c) xx Administrative Officer
Section xx.Powers, Duties and Functions – TTMO shall perform the following
functions:
a) Enactment and updating of the Traffic Code
b) Enforce policies related to transport planning and traffic management
c) Coordinate for the formulation of the transport and traffic plan of the city
Section xx.Budget Appropriation
References:
Agreda, J. (2012, July 21). 3 emission testing centers suspended. Retrieved June 2, 2013, from Sun Star Baguio:
http://www.sunstar.com.ph/baguio/local-news/2012/07/21/3-emission-testing-centerssuspended-233163
Baguio City Environment Code
Comprehensive Land Use Plan of Baguio City, 2010-2020
Fianza, J. G. (2009, September 9). City street cameras on trial period. Retrieved January 2013, from Official
Website of Baguio City: http://www.baguio.gov.ph/?q=content/city-street-cameras-trial-period
Fianza, J. G. (2011, December 30). Ttmc meets for transpo concerns. Retrieved January 2013, from Official
Website of Baguio City: http://www.baguio.gov.ph/?q=content/ttmc-meets-transpo-concerns-0
Litman, T. (2013, May 7). Parking management: Comprehensive implementation guide. Retrieved June 2013,
from Victoria Transport Policy Institute: http://www.vtpi.org/park_man_comp.pdf
National Statistics Office. (2013, July 12). Population of 319 thousand was recorded in Baguio City. Retrieved
August 2013, from National Statistics Office: http://www.census.gov.ph/content/population-319thousand-was-recorded-baguio-city-results-2010-census-population-and-housing
Ordinance Numbered 003, Series of 2000
Ordinance Numbered 106, Series of 2008
Ordinance Numbered 108, Series of 2008
Tebtebba Journal (2012).Indigenous perspectives on the Baguio urban ecosystem.