METROPOLITAN MANILA DEVELOPMENT AUTHORITY

PHILIPPINES EDSA BUS REDUCTION PROJECT

ENVIRONMENTAL AND SOCIAL ASSESSMENT

I. Introduction

This report contains the result of the rapid environmental and social assessment of the Metropolitan Manila Development Authority’s (MMDA) Enhanced Organized Bus Route System (EOBRS) Project. Preliminary screening, indicate that the project falls under Category C, which does not require an Environmental Clearance Certificate (ECC) from DENR and hence is not required to undergo full environmental impact assessment (EIA). However, MMDA plans to develop the carbon emission reduction that would be generated from the operation of the enhanced OBR system into a tradable asset under the CDM of United Nations Framework Conference for Climate Change (UNFCCC) through the assistance of the World Bank. Due to the requirements of the World Bank and the Clean Development Mechanism (CDM), a rapid assessment was conducted as part of the project feasibility study in order to identify mitigation measures that could be incorporated into the project design, and to provide information to DENR so it could issue Certificate of Non-Coverage (CNC), which is required by the Philippine Designated National Authority (DNA) of the CDM. The assessment also includes discussions on the project’s contribution to sustainable development as required by the DNA.

II. Project Description

The project is an enhancement of the existing Organized Bus Route (OBR) System of the Metropolitan Manila Development Authority. Operational since 2005, the OBR is a system of identification, tracking and dispatch control of some 3,500 to 4,000 buses operating on 31 LTFRB-approved routes that pass through EDSA. The identification and dispatch control are designed to alleviate the traffic congestion at bus stations and intersections along EDSA and to increase the efficiency of the passenger bus service by reducing the number of trips and increasing the load factor of buses. The enhancements include the following components: the installation and operation of RfID-based identification and tracking system and its associated data transmission and management system; the development of new and/or enhancement of existing infrastructure support; the upgrading OBR administration system; and the development of resulting CO2 emission reduction into an Emission Reduction (ER) asset.

Installation of RfID-based Identification and Detection System - At the core of the project concept is the installation of RfID transponders on all bus units authorized by LTFRB to service the 31 EDSA routes. Each RfID transponder is tamper-proof and unique to the bus. The RfIDs will emit signals that will be recognized and recorded by RfID readers installed within the vicinity of the OBR terminals, at checkpoints and at key intersections. The readers will be capable of storing and counter-checking the data of each bus from the list of legitimate units of the Land Transportation Franchising Regulatory Board (LTFRB). The data collected will then be transmitted to the data servers at the OBRs main office where it will be processed and analyzed. The medium of data transmission will be through wireless broadband access using Worldwide Interoperability Microwave Access (WiMax) technology. The fixed readers will be complemented by portable readers, which will be used to detect and apprehend unauthorized bus units on the spot or while they are in transit along EDSA.

The enhanced OBR will involve the acquisition and/or installation of the following ICT items:
• RfID transponders/tags – About 3,500 bus units will be tagged with RfID transformers each containing unique identification code is associated with the bus unit’s identity records.
• RfID readers – Some 20 RfID readers will be installed at the queuing terminals and checkpoints while two mobile units will be carried by roaming enforcer units along EDSA (Figure 3.2). Additional RfID readers will also be placed at the entry and exits of loading bays (bus stops) and key intersections to monitor dwell times of buses at these areas.
• Field Digital Assistants (FDAs) – Traffic enforcers will be equipped with FDAs, which are capable of reading barcodes on driver’s licenses and automatically printing out traffic violation tickets.
• Close Circuit TV (CCTV) Cameras – Some 200 CCTV cameras will be installed at the terminals and loading/unloading bays and key intersections. The CCTV will support the data from RfID readers by providing real time visual assessment of traffic situations in key stops and intersections. The cameras will also provide additional evidence of dwell time violations.
• Public Address System - All terminals and checkpoints will be provided with public address systems and public display monitors to announce dispatch schedules.
• Central Data Server – Two (2) Data Server Machines with one serving as back up unit will be installed at the OBR command center (Metrobase) at MMDA (Figure 3.3).
• WiMax Bandwidth - MMDA will lease wireless bandwidth from the local telecom company for transmitting RfID data and TV pictures to the Metrobase.

OBRS Management and Operation System – The existing OBR administration systems and procedures will be upgraded in order to fully operate the RfID system. This would include putting in place an organizational set up, filling in the staffing pattern, the writing of operational guidelines and procedures and training of the staff on the new system and procedures. A unit within MMDA will be organized composed of a unit head, who shall provide direction and control to the Office; a Service Support Section which will handle the administrative requirements of the unit and provide the necessary support to the other Sections; a small Field Enforcement Team; a Bus Dispatch Management Section who shall monitor bus travel and commuting patterns, and ensure that the system is always operational; and a (5) Data Management Section who shall analyze data being collected from the field, generate reports, process summons for violators, and interface with Dispatch Management personnel.

Terminals, Checkpoints and Other Enhancements - The system will be applied to all 31 LTFRB-approved routes that pass through EDSA. To control the number of buses entering EDSA, MMDA has established three (3) holding/dispatch terminals and fourteen (14) checkpoints along the main routes. Table 3.1 shows the north and south terminal/checkpoint assignments and the number of buses authorized for each route.

The routes – The routes covered by the system are as follows:

Rt. No. Origin-Destination No. of bus assigned
1 Alabang-Fairview 320
2 Alabang-Malinta 179
3 Alabang-Navotas 136
4 Alabang-Novaliches (Town Proper via Quirino Hi-way) 181
5 Alabang-Novaliches (via NLEX to Gen Luis) 32
6 Alabang-Tala 3
7 Baclaran-Sta Maria (via NLEX, EDSA, Ayala/uendia) 174
8 Baclaran-Ampid (via Aurora, EDSA, Ayala/Buendia) 28
9 Baclaran-Ampid (via C’wealth, EDSA, Ayala/Buendia) 28
10 Baclaran-Bagong Silang 71
11 Baclaran-Fairview 238
12 Baclaran-Fairview (via C’wealth, EDSA Ayala/Buendia) 94
13 Baclaran-Grotto 230
14 Baclaran-Malanday 70
15 Baclaran-Malanday (via EDSA, Ayala/Buendia) 66
16 Baclaran-Navotas 142
17 Baclaran-Navotas (via Ayala/Buendia) 186
18 Baclaran-Norzagaray (via C’wealth) 93
19 Baclaran-Novaliches 188
20 Baclaran-Novaliches (via Quirino Hi-way, Ayala/Buendia) 10
21 Baclaran-SJDM (via C’wealth, EDSA, Ayala/Buendia) 39
22 FTI-Fairview 30
23 FTI-Navotas 121
24 NAIA-Fairview 17
25 NAIA-Malanday 82
26 NAIA-Tala 230
27 Pacita-Fairview 109
28 Pacita-Navotas 144
29 Pacita-Novaliches (via Q’rino Hi-way) 21
30 Pacita-Novaliches (via NLEX, Gen Luis) 126
31 Pala-pala (Dasmarinas)-Navotas 47
Total 3435

The terminals and checkpoints– There are currently three existing terminals and 19 checkpoints, which will be improved under the project.

Terminal/
Checkpoint Facility Type Capacity
(No. of Bus) Proposed Improvements
North
Robinson’s Terminal Terminal 100 Light fixtures, display monitors, PAS
Navotas Terminal Terminal 70 Concrete pavement, light fixtures, display monitors, passengers/drivers area, toilet facilities, PAS
Tala Checkpoint 20 PAS, display board/monitor, signaling system
Santa Maria Checkpoint 20 PAS, display board/monitor, signaling system
SJDM Checkpoint 20 PAS, display board/monitor, signaling system
Novaliches Checkpoint 20 To be replaced with new terminal
Norzagaray Checkpoint 20 PAS, display board/monitor, signaling system
Malinta Checkpoint 20 PAS, display board/monitor, signaling system
Malanday Checkpoint 20 PAS, display board/monitor, signaling system
Grotto Checkpoint 20 PAS, display board/monitor, signaling system
Ampid Checkpoint 20 PAS, display board/monitor, signaling system
Bagong Silang Checkpoint 20 PAS, display board/monitor, signaling system
South
Filinvest Terminal Terminal 116 Parking Space, Office Building, Sanitation Facilities, PAS, display board/monitor, signaling system
Baclaran (Roxas Blvd Service Rd) Checkpoint 20 To be replaced with a new terminal
Pacita Checkpoint 20 PAS, display board/monitor, signaling system
FTI Checkpoint 20 PAS, display board/monitor, signaling system
NAIA Checkpoint 20 To be replaced with a new terminal
Palapala Checkpoint 20 PAS, display board/monitor, signaling system

New terminals. There will be six (6) additional terminals to be established:

Terminal Planned
Development/
Enhancements Developer – Operator Planned Capacity
1. Malabon Terminal Existing building ready for operation Innovative Ventures Corp. 74
2. Navotas Terminal Provision of concrete pavement, passenger’s waiting area and washrooms Navotas City Government 60
3.Mall of Asia Terminal New construction Mall of Asia 208
4. Tala Terminal New construction To be contracted Out 30
5. Malinta Terminal (McArthur Hi-way, Valenzuela) New construction To be contracted out 70
6.Pacita Terminal New construction To be contracted out 50
7.FTI Terminal New construction To be contracted out 41
8. NAIA 3 Terminal Newly Constructed Resorts World (under negotiation) 10

The bus stations – The bus loading and unloading stations that will be covered by the system are the following:

North Bound
1. EDSA - Taft Ave.
2. EDSA - Magallanes (Mrt Station )
3. EDSA - Ayala (Mrt Station )
4. EDSA - Buendia Ave (Mrt Station )
5. EDSA - Estrella
6. EDSA - Guadalupe
7. EDSA - Pioneer (Mrt Station )
8. EDSA - Shaw Blvd. ( EDSA Central Mall )
9. EDSA - J. Vargas Ave. ( Sm Megamall )
10. EDSA - Ortigas (Robinsons Galleria)
11. EDSA - B. Serrano/Santolan
12. EDSA - Main Avenue (Makro)
13. EDSA - Cubao (Farmers)
14. EDSA - New York (Baliwag)
15. EDSA - Ermin Garcia ( Nepa Q. Mart )
16. EDSA - Central Terminal
17. EDSA - North
18. EDSA - Muñoz
19. EDSA - Royal
20. EDSA - Oliveros
21. EDSA - Mcu

South Bound
1. EDSA - Mcu
2. EDSA - Oliveros
3. EDSA - Royal
4. EDSA - Muñoz
5. EDSA - West
6. EDSA - Pinatubo St. (Mrt Station )
7. EDSA - Santolan (Mrt Station )
8. EDSA - Connecticut
9. EDSA - Ortigas Ave. ( Poea )
10. EDSA - Pioneer (Mrt Station )
11. EDSA - Guadalupe
12. EDSA - Estrella
13. EDSA - Buendia Ave (Mrt Station )
14. EDSA - Ayala (Mrt Station )
15. EDSA - Magallanes (Mrt Station )
16. EDSA - Taft Ave.

The following enhancements will be installed or provided in each of the above bus stations:
1. Computer
2. Booth
3. Rfid
4. Camera
5. Ac Power Source
6. Signal Light
7. Display Timer
8. Load Sign
9. Roadsigns
10. Route Signs
11. Overhead Signs
12. Pavement Markings
13. Giggle Bars/Rattle Strps
14. Rfid Pole/Bracket
15. Waiting Shed
16. Railings
17. Wire-Mesh/See-Thru Fence
18. Gantry
19. Lightings
20. Platforms
21. Median Divider
22. Pole Installation For Timer/Load Signs

III. Baseline Environmental and Social Conditions

All infrastructure and system controls will be installed within the boundaries of the Metropolitan Manila. Impact will be mostly felt in EDSA where dwell time at bus stations and intersections will be controlled. Localized impacts will also be felt at terminal sites and checkpoints, which will be established as close as possible to the origin and end point of each route.

EDSA. The EOBR system will affect almost the entire stretch of EDSA, from Roxas Boulevard intersection in Pasay City to MacArthur Highway intersection in Valenzuela City. The specific points of control include all bus stations and intersections along EDSA. The environmental aspects that are likely to be affected are traffic congestion, air quality and noise. The following are the baseline environmental conditions at EDSA:

Traffic Congestion – An ADB study estimates that the vehicular traffic in EDSA averages 30-40 million vehicles kilometers per year (Figure 1). The level of congestion in Metro Manila is severe with average travel speed of only 10 km/hr (World Bank, 2001).

In a study on the traffic flow on bus lanes in 2004, De Guzman and Fillone (2005) counted a total of 141 buses over a 15-minute period on a morning peak or a bus every 6.4 seconds.

Noise Levels –Noise is the least regulated nuisance in Metro Manila. Buses in Manila use very loud air horns that are designed for trucks using the freeways. Many buses also do not use proper mufflers and even install muffler extensions that are designed to amplify engine roars. Buses also frequently blow their horns at loading areas and intersections to attract passengers. Noise levels in front of Camp Crame, Quezon City, which is a less busy segment of EDSA, have been recorded to range between 85 to 89dB during the 9:00am to 6:00pm period. These levels are way above the Philippine noise standard for commercial area of 75dB (Mappala and Dominguez-Javier, 2008). MMDA has been receiving complaints from residential areas along EDSA on bus horns and there have been attempts to address this problem. In 2003, MMDA issued a regulation banning the installation of loud/power horns and similar devices that produce excessively loud or startling sounds (MMDA Regulation #03-005, S. 2003 ). This was followed by another regulation (Regulation #04-002), which banned unnecessary blowing of horns along EDSA and major thoroughfares and imposed PhP500 fines for each violation. LTO also imposes fines for excessive noise for PhP150. However enforcements of these regulations have been lax as MMDA traffic enforcers are busy with other tasks.

Air Quality – Measurements made by the DENR in 2003-2004 revealed that the Total Suspended Particulate (TSP) levels in EDSA ranged from 175ug/Nm3 (at National Printing Office, NPO) to 250ug/Nm3 (at Congressional Road intersection), way above the national guideline value of 90ug/m3. A study by the Department of Health in September 2002-May 2003 also recorded an annual mean of 96.9 ug/m3 of fine particulate (PM10) on EDSA-National Printing Office, Quezon City, which is above the national guideline of 60ug/m3. It is estimated that about 85% of PM10 in EDSA is coming from vehicular emissions . An air quality model based on vehicular emissions estimates the long-term PM10 concentrations at EDSA to range between 30 to 60ug/m3 (Figure 3).

Terminals. The terminals will be located at the designated origins and destinations of LTFRB approved routes namely Baclaran (Pasay City), Alabang (Muntinlupa City), Navotas LGU Terminal (Navotas City), Malabon Private Terminal (Malabon City), Tala, etc…_____________

The four terminals currently being used for OBR are: (1) the Metropolis Terminal in Alabang, (2) the Baclaran Terminal, (3) the Robinson Mall Terminal in Fairview and (4) the Navotas LGU Terminal. Table 2 summarizes the baseline environmental conditions of these terminals.

The Navotas Terminal - The Navotas terminal sits on a reclaimed land near the Navotas fish port. The land is owned by city government of Navotas. The Navotas City government used part of the land for a mini-park and promenade with food eateries. The current capacity is 70 buses.

Baclaran Terminal -The Baclaran Terminal is located in front of the Baclaran Church, which is a popular pilgrimage site during Wednesdays. This area is very crowded even during ordinary days as this also serves terminals for jeepneys and small provincial buses (mini buses) plying Coastal Road down to various points in Paranaque and Cavite. Informal vendors also use the area to display their wares and many have already built makeshift structures on the side. The terminal is actually a checkpoint or queuing area for buses because it does not have any space for parking.

Under the EOBRS, this terminal will be replaced with a new terminal to be constructed on a vacant lot near the Mall of Asia. The lot is currently covered with tall grass vegetation.

Alabang Terminal -The terminal is located in front of the Metropolis Mall. The terminal is very spacious and can accommodate up to 116 buses. The terminal is equipped with a waiting shed and fishbone parking slots, which allow the buses to be parked with engines turned off until they are dispatch. Each bus pays the mall owner PhP30 each time they use the terminal. The municipality also assures MMDA that an adjacent lot which is currently used as a Jeepney terminal will be made available to the buses should the MMDA need more space.

Fairview Terminal -The Fairview Terminal is located on the parking lot of Robinson’s Mall. The mall owner allowed the use of the lot to attract patrons for the mall. Adjacent to the terminal is a gated community/subdivision developed by Robinson’s Land, the mall owners. The homeowners’ association had been complaining about the fumes and noise generated by the buses. It was observed that one house had installed noise barriers to keep out the noise.

Checkpoints – The environmental conditions at the checkpoints are given in the table below:
Terminal Description of Present Environmental Conditions
North
Tala Light traffic was observed
Santa Maria -do-
SJDM -do-
Novaliches -do-
Norzagaray -do-
Malinta -do-
Malanday -do-
Grotto -do-
Ampid -do-
Bagong Silang -do-
South
Baclaran (Roxas Blvd Service Rd) Very crowded
Pacita Light traffic was observed
FTI -do-
NAIA -do-
Palapala -do-

Social Aspects – The stakeholders of the project include MMDA employees, particularly those involved in the OBRS, the holders of the bus franchise/operators, the bus drivers and the daily commuters.

Stakeholder Consultation - Prior to the implementation of the OBR System in 2003, several dialogues with the transport owners, operators, and operations managers of the different bus companies that would be covered by the project were held. During the meetings, the objectives and mechanics of the system were explained. The survey conducted by MMDA was also presented to provide them an idea on the average occupancy level and what the OBR System aims to achieve. The targeted reduction in the number of trips as a result of the dispatch control being established translates into higher occupancy level. It was emphasized that fewer trips would be necessary considering the demand. The bus operators generally supports the establishment of the system mainly because it would remove Colorum bus units from operation and deter other illegal practices such as “trip cutting” and “out-of-line” operations.

IV. Environmental Impacts

These enhancements will allow MMDA to easily detect and apprehend illegal bus units and optimize the number of bus trips along EDSA by controlling the dispatch of authorized buses from terminals and checkpoints, and enforcing maximum dwell time limits at loading stations and intersections. The reduced number of bus trips would alleviate traffic congestion, improve air quality, and reduce noise levels in EDSA.

The institution of the new automated system may cause economic and social dislocations of bus drivers, bus operators and traffic enforcers. Also, the development and operation of terminals and checkpoints may also cause local adverse environmental impacts.

Positive Environmental Impacts – The project is expected to reduce traffic congestion, improve air quality and reduce vehicular noise along EDSA. It will also contribute to global greenhouse gas emission reduction.

• Reduced traffic congestion along EDSA – The cost of vehicle congestion at EDSA is estimated to be around P100 billion annually in 1996 or close to 5% of the gross domestic product. The project, by optimizing the number of trips of buses and limiting dwell time at bus stations and intersections could substantially improve the traffic flow at the bus lanes. Substantial economic benefits are expected due to increased productivity. Faster traffic flow means less time spent on the road to work and meetings and less stress from traffic jams.
• Improved air quality and noise reduction along EDSA - Measurements made by the DENR in 2003-2004 revealed that the Total Suspended Particulate (TSP) levels in EDSA ranged from 175ug/Nm3 to 250ug/Nm3, way above the national guideline value of 90ug/m3. A study by the Department of Health in September 2002-May 2003 also recorded an annual mean of 96.9 ug/m3 of fine particulate (PM10) on EDSA-National Printing Office, Quezon City, which is above the national guideline of 60ug/m3. It is also estimated that about 85% of PM10 in EDSA is coming from vehicular emissions . The project is expected to improve air quality along EDSA due to lower total SO2, NO2, ozone, and hydrocarbon emissions that would result directly from the reduction of the number of bus trips per day and indirectly from the improvements in the flow of traffic along EDSA (i.e. shorter travel time means lower emissions per vehicle). The project also promises better enforcement of traffic rules including the ban on blowing of oversize horns and similar devices that produce excessively loud or startling sounds . The project provides indirect health benefits in terms of lower premature mortality and morbidity from air pollution-related diseases and stress from noise.
• Contribution to the reduction of global greenhouse gas emissions - The project will contribute to the reduction of global greenhouse gas emissions due to lower fuel consumption.

Environmental Issues – The installation and operation of RfID system has no adverse environmental impact. However there are potential environmental issues associated with development/enhancement and operation of new/existing terminals and checkpoints and other infrastructure enhancements. They include:
• Noise generation from engines and horns – Noise can potentially increase in the terminals or queuing areas from honking of horns and running engines;
• Increased air pollution – The air quality within the terminal can easily deteriorate from bus engines’ exhausts as well as from ground dusts, especially on enclosed terminals or in terminals without concrete pavements;
• General congestion - As most of the terminals are located in commercial areas, congestion may occur at the terminal area, at their entrances and vicinities if capacities are exceeded or if bus entry and exit are not managed properly. This will cause nuisance to the public and business locators; and,
• Health and safety – There is a possibility that MMDA could settle with makeshift terminals or terminals with inadequate facilities. Terminals must be provided with adequate security system, sheltered passengers/drivers’ waiting area, proper ventilation, washrooms and other amenities. The terminals must be accessible to the handicapped and comply with basic fire safety standards.

Terminal/checkpoint development and associated environmental issues - MMDA has already established three (3) terminals and fourteen (14) roadside checkpoints at strategic points of the main routes. However to effectively control buses entering EDSA, MMDA has to develop additional terminal space and enhance existing terminals and checkpoints.

Enhancement of existing terminals – Table 3 shows the critical environmental issues of the existing terminals.

Table 3. Proposed enhancements and critical environmental issues on existing terminals
Terminal Description Critical Issues
Navotas Terminal Owned by the Navotas City Government, the terminal sits on a reclaimed land near a fish port and a mini park and promenade with restaurants. The terminal ground is unpaved and there is no fence or enclosure. The Navotas City government collects P20.00 terminal fee per bus and wants to retain the Terminal while the MMDA also pays the LGU for the electricity cost of equipment installed in the terminal. • Generation of dust from the unpaved ground during dry days.
• The ground can also turn muddy during rainy days
• Public health and safety
Malabon Terminal This terminal is just recently developed and has not been used yet. Formerly used as a warehouse, the terminal is an enclosed structure. The area maybe prone to flooding as indicated by water marks on the wall. There is also a pool of water on the road fronting the terminal. • Inadequate drainage at the entrance of terminal
• Ventilation is a potential issue
Baclaran Terminal The existing terminal is actually a checkpoint along the service road of Roxas Boulevard where buses queue for their turn to be dispatched. The area is already crowded because the local government allows informal vendors to display their wares on the roadside while private vehicles are also allowed to park on empty spaces. Bus engines are usually left running, contributing to the generally air pollution in the area. The area becomes chaotic during Wednesdays when devotees of the Church’s patron saint make their weekly pilgrimage. • General congestion
• Public health and safety
• Noise and air pollution
Alabang Terminal The terminal occupies one of the giant parking lots of Metropolis Shopping Mall. The terminal area is far from the shoppers being located at some distance from the entrance or the busy spots of the mall. Very few passengers actually wait at the terminal. • None
Fairview Terminal The Fairview Terminal is located on the parking lot of Robinson’s Mall. The parking area is situated close to the Mall building and adjacent to a residential subdivision. • Noise and air pollution affecting the residential subdivision and shoppers

New Terminals – MMDA has proposed the development of additional six (6) new terminals. These are the Mall of Asia in Pasay City, Tala, Malinta (or Novaliches), Pacita, FTI and NAIA 3. While the general locations of these terminals have been identified, there are still no specific site and detailed development plans. The environmental issues of terminal development can be anticipated as follows:

• Site selection-related issues – This includes drainage issues, proximity of crowded places, residential areas, hospital and other delicate areas.
• Design specification issues – This include the possibility of accepting a makeshift terminal or terminals with substandard or inadequate facilities such as lack of passenger waiting area, absence of perimeter fence or enclosures, unpaved ground, absence of washrooms, etc.
• Construction-related or civil works-related issues – This includes dust and noise generation, construction spoils, potential worker or pedestrian safety issues.

Checkpoints. MMDA will close four of its major checkpoints and replaced them with terminals. The largest of the checkpoints is the Baclaran checkpoint, which currently dispatches more than 1,500 buses each day. The Baclaran checkpoint will be closed when the Mall of Asia Terminal becomes operational. The other checkpoints to be closed are Tala, Malinta, Pacita and FTI. The environmental issues associated with checkpoint operations include potential crowding and traffic congestion at the site and air quality and noise emissions:

Environmental Management and Monitoring Plan

Table 4. Environmental Management and Monitoring Plan
Activity and Impact Description Critical Issue Mitigating Measure Indicator or Means of Verification
Development of New Terminals
• Site-related environmental issues • Development and use of terminal siting criteria • Existence and actual use of siting criteria for terminals
• Makeshift terminal/inadequate or substandard facilities • Imposition of minimum facilities to be provided and design standards to be met* • Existence and actual implementation of terminal design standards
• Construction-related envt’l issues • Development and use of civil works environmental guidelines • Existence and actual implementation of environmental guidelines for civil works
Enhancement Existing Terminals
Navotas Terminal • Dirt pavement producing dusts and mud
• Lack of enclosures limits ability to control ingress and egress of vehicles and people
• Absence of or inadequate sanitation facilities? • Concreting of terminal ground
• Provision of passenger/driver waiting shed/structure
• Provision of washrooms
• Perimeter fence or enclosures
• Installation of a security system • Site inspection indicating presence of these improvements
Malabon Terminal • Lingering drainage problem particularly on the access road
• Potential deterioration of indoor air quality due to closed structure • Improvement of drainage of road fronting the terminal building
• Provision of adequate ventilation • Site inspection indicating improved drainage and installation of adequate ventilation
Fairview Robinson • Susceptible to air and noise pollution as the parking space is very close to the Mall Shopping area and there is residential subdivision nearby • Ban blowing of horns inside the terminal
• Engines should be shut down while the bus is parked and should be started only when dispatched • Existence and actual implementation of terminal operations policies banning horn blowing and running engines while parked
Alabang Metropolis • No issue • None • N/A
Baclaran • Very crowded. Presence of vendors, Jeepneys, tricycles, passengers and shoppers • Discontinue use of terminal when Mall of Asia becomes operational • Site inspection indicating no dispatching operations in the area
Operation of Terminals
• Congestion • Provide adequate terminal capacities
• Traffic management at entry • No. of buses versus no. of terminal parking space
• Absence of queues at terminal entrances
• Air emissions and noise from engines and horns • Turn off engines while parked and allow start-up at earliest 1 minute before actual dispatch
• Dispatch buses from their parking slots
• Ban blowing of horns inside the terminals; enforce use of prescribed horns only. • Site inspections, observations
• Existence of a policy on running engines, blowing of horns and dispatching from parking slots
• Absence of complaints
• Annual air quality measurements at terminals
• Public Health and Safety • Adopt housekeeping standards and conduct occasional audit by MMDA
• Install security and alarm system • Site inspection indicating clean facilities, absence of vermin
• Functional security and alarm system
• MMDA Audit report
• Lack of authority by MMDA to impose measures on Terminal Operators to address above issues • Development of Terminal-Specific Operations Manual and Policies and include acceptance of the same as part of the conditions of the contract to operate the terminal • Existence of Terminal Operations Manual and Policies covering the above requirements
• Evidence of actual implementation of the policies
Operations of Checkpoints
• Noise and air emissions • Turn off engines
• Ban blowing of horns
• Dispatch buses from their position in the queue rather than from the beginning of the queue
• Occasional audit by MMDA-EOBRS unit • Existence and actual implementation of policies on running engines, blowing of horns and dispatching
• Audit report by MMDA-EOBRS unit
• Crowding and traffic congestion at checkpoints • Limit the number buses to 20 at the time
• Provide a general schedule for buses to enter the queue • Site inspection
• Existence of general schedule for queuing

Development and operation of the terminals – The terminals will be developed, owned and maintained by independent operators who charge fixed terminal fees to buses each time they use the terminal. The terminal owner is responsible for providing the parking space and amenities (e.g. washrooms, passengers’ waiting area, office space, etc.) as well as the daily upkeep and security of the terminal while MMDA is responsible for providing the dispatch equipment and fixtures (e.g., RfID readers, signs, display monitors, public address system etc.) and the dispatch operation, including the enforcement of terminal rules. The terms of the arrangement are spelled out in an agreement between MMDA and the developer owner. Included in the agreement are certain standards/requirements that the developer must conform to/comply with in order to qualify as an MMDA terminal. The new terminals will be contracted out to developers through the similar arrangements.

The following will be developed:
• A set of minimum terminal standards specifications – This manual shall contain, criteria for selection of sites, the minimum design standards specifications and facilities to be provided and the environmental guidelines to follow during construction. This shall be provided to prospective developers and will be MMDA’s basis for evaluating terminal development plans.
• A terminal operation manual will be developed to provide uniform guidelines for the operation of the terminals. A manual will also be prepared for the operation of checkpoints.

V. Social Impacts

Positive Social Impacts – The optimization of bus trips will improve the welfare of the bus-riding public who belong to the low-income group. The improved traffic flow will reduce travel time to and from workplaces and thereby increase the time spent with families at home. The reduced congestion will also reduce commuting stress while the ridding of illegal units which are the ones often not complying with safety and other requirements will likely improve overall passenger comforts. Finally, the automation of detection and violation processing is expected to improve governance in traffic and public transport management by reducing opportunities for corruption and enhancing the regulatory capacity of MMDA and other government agencies.

Potential Negative Social Impacts - The potential social impact includes possible displacement of bus drivers and MMDA traffic enforcers assigned under the manual OBR system. Another potential social issue is the acceptability of the RfID tagging to Bus Operators, although adequate consultations reportedly have already been conducted.

• Possible displacement of traffic enforcers –There are currently around 200 traffic enforcers who are temporarily assigned as traffic enforcers when the traffic situation in EDSA became critical. When the RfID system becomes fully operational these employees will return to their original assignments. However the enforcers have been in the traffic enforcement assignments for more than five years already and may have difficulty adjusting to their old assignments.
• Displacement of bus drivers – Normally, bus operators who owned the franchise directly hire bus drivers. However, an unknown number of operators rent their units to individual drivers for a fixed fee called “boundary”. The implementation of no tag no travel policy will put illegal buses out of operations. If the drivers were hired directly by the operators then they will lose their jobs. However it is more likely that boundary-type of arrangements are used for colorum operations.
• Potential displacement of informal settlers - Terminals will be typically owned and developed by private developers. However in the case of LGUs developing their own lands for terminals and in case MMDA would opt to develop its own property or acquire lands for new terminals, or assume the responsibility of clearing private lands of informal settlers for private owners, a Resettlement Policy and Cultural Property Framework has been prepared to be adopted by MMDA as part of the conditions of the ERPA.

Social Mitigation Plan – The following are the critical social issues and the planned mitigation/management measures:

Critical Social Issue Mitigation/Management Measures
Displacement of bus drivers of illegal units Drivers of apprehended bus units caught plying EDSA without valid franchise who do not own the illegal bus unit will be registered and will be given priority in job retraining program
Potential reduced earnings of bus drivers who are paid on fixed per trip basis Work with bus owners/operators to implement a new payment scheme
Reassignment of traffic enforcers to new job assignments or return to their old job assignments A re-training program for enforcers shall be implemented
Land acquisition and terminal development Development and Adoption of Land Acquisition and Resettlement Policy Guidelines

VI. Contribution to Sustainable Development

The project will generate both local and global environmental benefits as well as economic benefits to the country. It will also improve governance on traffic and public transport franchise management.

Economic Development – The improve traffic flow on EDSA will contribute to the economic development to the country. The full and effective implementation of MMDA’s OBRS is expected to result to increased travel speed and reduced travel time along EDSA. Reduced delays for millions of commuters using EDSA daily will lead to increased productivity. Moreover, reduced traffic congestion means reduced commuting stress of workers going to work.

Lower Pollution Level – Emissions of noise and air pollutants on EDSA would be reduced not only because of reduced number of bus trips per day but also because of the improved traffic flow would mean buses will spend less time on the road. This would redound to improved health of commuters, vendors and traffic enforcers who are exposed daily to vehicular emissions.

Reduction of Global GHG Emissions - The project will reduce CO2 emissions from bus through the: (1) elimination of Colorum (illegal) buses plying EDSA numbering around 1,500; (2) reduction of the number of bus trips to a level that is essential or to optimal level; (3) reduction of transit time of each bus by as much 30-60 minutes per round trip, and; and (4) increase in the travel speed and reduction of travel time of other of vehicles using EDSA.

At present there are approximately 5,000 buses passing through EDSA. It is suspected that more than 1,500 of such buses are illegal and are using the authority of legitimate franchisees by substituting the plate numbers of the authorized ones with the ones originally assigned to the illegal bus. A large percentage of the 5,000 buses run between 2 to 5 trips (origin-destination-origin) daily based on the interview of bus operators and the dispatch records of the MMDA-OBR personnel from late 2003 up to early this year. Each trip consumes around at least 2 hours of transit time and on the average 35 liters of diesel fuel . On the assumption that each bus devotes 10 hours on the road during the entire working day, this makes a total of 50,000 bus-hours per day.

Assuming an average consumption of 15 liters per hour at transit under the business-as-usual scenario, this amounts to 750,000 liters per day of diesel fuel. At an equivalence of 2.68kg CO2/liter of diesel, the total amount of CO2 emission is 2,010,000 kg per day (Please see Table). Without the project this emission scenario is expected to extend into the future because even if LTFRB will retire (i.e. not renew) expiring franchises, illegal buses are still expected to fill in the gap, in the absence of effective franchise enforcement.

With the proposed system in place, the total number of bus hours is expected to be reduced to 16,060 bus-hours per day because of the improvement in travel speed and turn-around time, resulting in a CO2 emission of 645,632 kg/day or a reduction of about 409,310 tons CO2 per year.

In addition to the reduction of bus trips through trips administration, the use of RFID transponder tags will ensure that no unauthorized units are fielded using legitimate franchise authorities. This can be considered as outright reduction of minimum potential 35 liters of diesel fuel burning per bus that are prevented from running on the street.

Improving Local Governance - The project will improve enforcement of franchise and traffic rules and regulations by automating detection and processing of violations, improve the transparency of transactions between enforcers and bus drivers/operators, and minimize physical contacts and hence, reduce opportunities of corruption.

• Reducing opportunities for corruption - Corruption in the bus sub-sector happens in two places: the granting, renewal, suspension or revocation of franchises by the LTFRB; and the enforcement of franchise conditions, general traffic regulations, and specific OBR regulations by MMDA, LTO, and LTFRB. Under the current system, MMDA enforcers have power to set dwell times and headways for buses. This provides abundant opportunities for bribery in exchange for allowing the bus to overstay at terminals and loading bays to collect more passengers. RFID technology will take away this power from the field and transfer it to MMDA headquarters, thereby eliminating the incentive to solicit or offer bribes. Another opportunity for corruption in field enforcement happens in the detection and apprehension of Colorum buses, those operating out of line, and those cutting trips. Under the current system, detection of these violations is difficult because of the sheer number of buses plying EDSA; the number of routes passing through the EDSA corridor; the number of bus companies. The usual solution to these problems is to field more traffic enforcers and to conduct surprise inspections from time to time. This labor-intensive approach does not guarantee improved enforcement, and by increasing contact, actually increases opportunities for corruption. The RFID system will minimize contact between field personnel and erring bus drivers while providing almost incontestable evidence of violations.

• Enhancing regulatory capacity. The RfID system will also enhance the regulatory capacities of government agencies, which should lead to more efficient and profitable bus operations and better quality services. The data to be generated by the system is expected to support better planning and policies formulation among MMDA, LTFRB and DOTC. A successful enhanced OBR scheme advances the argument for discontinuing the granting of additional bus franchises along the 31 in-city routes that pass through EDSA and capping the number of bus units under the existing franchises to a level that approximates demand. This effectively removes EDSA bus franchises as “booty” to reward followers (patronage), or relatives (nepotism), a “carrot” to gain political support, or “meat” to dangle to the highest bidder.

References

DENR (2005), 2003-2004 National Air Quality Status Report, Environment Management Bureau, Department of Environment and Natural Resources (DENR), Quezon City

De Guzman, P.J. and A.M. Fillone (2005), “The intra-day effect of the strict implementation of The yellow lane policy on vehicular flow along interrupted and uninterrupted segments of Epifanio De los Santos Avenue (EDSA), Journal of the Eastern Asia Society for Transportation Studies, Vol. 6, pp. 1597 - 1609, 2005

Mappala, U.A. and S.F.T. Dominguez-Javier (2008) “Estimation and Mapping of Vehicular Traffic Induced Noise Along A. Bonifacio Avenue and Sumulong Highway in Marikina City,” Webpage: http://tssp.tripod.com/documents/16th_tssp/16th_mappala.pdf

World Bank (2001), Metro Manila Urban Transport Integration Project, Project Appraisal Document, World Bank, Transport Unit, East Asia Pacific Region, January 23, 2001.

ADB (2004), Public Health Monitoring of the Metro Manila Air Quality Improvement Sector Development Program, Study Report, Asian Development Bank