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Truck Ban
Another form of vehicle restraint focuses on freight and logistics vehicles, particularly trucks. These are commonly referred to as large vehicles having at least 6 tires (double-tired rear axle). The prevailing perception is that many if not most of these vehicles are overloaded and impede the flow of traffic due to their slow speeds as well as damage pavements not designed for heavy vehicles.
“The truck ban is a scheme first applied in the late 1970’s to address the perception that freight vehicles are the main culprits in congesting Metro Manila roads. Trucks were prohibited from traveling along major arterials including the primary circumferential and radial road network for most of the day. Exemptions from the daytime ban were applied to roads in the vicinity of the port area where truck traffic was practically inevitable.”
The coverage area of the truck ban included all of Metro Manila’s major circumferential and radial roads – C1 to C5 refer to Metro Manila’s circumferential roads while R1 to R10 refer to the radial roads. These comprise the main arterials of the Metro Manila road network. For reference, C3 refers to Araneta Avenue and related roads, C4 is EDSA, Letre and Samson Roads, and C5 refers to Katipunan, E. Rodriguez and C.P. Garcia Avenues. R1 refers to Roxas Boulevard, R5 is Shaw Boulevard, R6 is Aurora Boulevard, and R7 is España and Quezon Avenues.
“There are the different versions of the truck ban being implemented in Metro Manila. Truck Ban 1 is enforced along EDSA, Metro Manila’s busiest arterial and often its most congested road. Designated as Circumferential Road 4 (C4) it has a 10- to 12-lane carriageway with a mass rapid transit line running along its median. Truck Ban 2 practically covers all other roads except sections of arterial roads that have been designated as truck routes.”
Truck Ban 1 is enforced from 6:00 AM to 9:00 PM everyday except Sundays and Holidays. Meanwhile, Truck Ban 2 is implemented from 6:00 AM to 9:00 AM and 5:00 PM to 9:00 PM everyday except Sundays and Holidays. The second version attempts to minimize trucks during the morning and afternoon/evening peak periods.
“The chronology of the truck ban scheme started in 1978. In recognition of the critical situation of traffic congestion in Metro Manila, the then Metropolitan Manila Authority (MMA) issued Ordinance No. 78-04, which prohibited cargo trucks, with gross vehicular weight (GVW) of more than 4,000 kilogram, from plying along eleven major thoroughfares in Metro Manila during peak traffic hours – from 6:00 A.M. to 9:00 A.M. and from 4:00 P.M. to 8:00 P.M., daily except on Saturdays, Sundays and holidays.
In 1990, the Department of Transportation and Communication (DOTC) issued Memorandum Circulars No. 90-367 and 90-375, changing truck ban hours to: between 7:00 A.M. and 10:00 A.M. on weekdays; 4:00 P.M. to 8:00 P.M. for Monday to Thursday; and from 4:00 P.M. to 9:00 P.M. on Fridays. In response to the appeal of the members and officers of the various truckers’ associations for an alternate route and a 2-hour reduction of truck ban, the MMA issued Ordinance No. 19, Series of 1991, amending MMC Ordinance No. 78-04. This issuance provided alternate routes to the truck ban routes and effected a 2-hour reduction of the truck ban period, thereby prohibiting trucks on the road from 7:00 A.M. to 9:00 A.M. and from 5:00 P.M. to 8:00 P.M.
In 1994 the MMA issued Ordinance No. 5, Series of 1994, further amending Ordinance No. 78-04 as amended by Ordinance No. 19 Series 1991. The Ordinance restricts trucks from traveling or passing along 10 major routes from 6:00 A.M. to 9:00 A.M. and from 5:00 P.M. to 9:00 P.M. daily, except on Saturdays, Sundays and holidays. The Ordinance also provided for an “all-day” truck ban along Metro Manila’s major arterial road, the Epifanio Delos Santos Avenue (EDSA), from 6:00 A.M. to 9:00 P.M. daily, except Saturdays, Sundays and holidays.
In 1996, the MMDA, in its desire to further reduce traffic congestion even on Saturdays, issued Regulation No. 96-008 amending MMA Ordinance No. 94-05, imposing truck ban from Monday to Saturday, except Sunday and holidays. An MMDA Regulation No. 99-002, amended Ordinance No. 5, Series of 1994, wherein the “gross capacity weight” was amended from 4,000 to 4,500 kilograms.”
In the last few years, the MMDA has implemented adjustments to the truck ban scheme in coordination with Metro Manila local government units. Certain truck routes were identified to address the issues raised by the private sector, particularly industries and commercial establishments, regarding the transport and delivery of goods. Other cities in the Philippines have adopted the truck ban in one form or another, often directing trucks to use alternate roads in order to decongest the roads in the central business districts as well as to prevent their early deterioration as a result of truck overloading practices.
[Source of italicized text: Regidor, J.R.F. and Tiglao, N.C.C. (2007) “Alternative Solutions to Traffic Problems: Metro Manila in Retrospect,” Proceedings of the 11th World Conference on Transport Research (WCTR 2007), 24-28 June 2007, University of California Transportation Center, University of California, Berkeley, CA, USA, DVD.]
From Odd-Even to UVVRP… and back
Picking up from where I left off in the last post, I reproduce another part of the paper I co-authored with a good friend who now happens to be the Director of the Center for Policy and Executive Development (CPED) of the National College of Public Administration and Governance (NCPAG) of UP Diliman.
“The UVVRP or the “number coding” scheme, as it is commonly called, is a travel demand management measure that has evolved since its first implementation in 1995. The original intent was to use this measure to address congestion brought about in part by the many road and rail infrastructure projects being implemented throughout Metro Manila in the 1990’s. However, due to its perceived success in decreasing traffic along Metro Manila arterials, the scheme’s implementation was extended and even expanded to include public transport vehicles like buses, jeepneys and taxis.
The original programs involved only the main arterials of Metro Manila including its five circumferential and ten radial roads. These included the three expressways that connected the region to surrounding provinces in the north and south. All these are classified as national roads. The current program includes essentially all roads, with traffic enforcement units of cities and municipalities implementing the scheme for city and municipal roads. The MMDA enforces the scheme along most major roads.
The chronology of the development of UVVRP starts in 1995 when the MMDA Regulation No. 95-001 otherwise known as the “Odd-Even Scheme” was issued. The scheme bans private vehicles with less than three (3) occupants from plying restricted thoroughfares during AM and PM peak periods on particular days. Specifically, low occupancy private vehicles with license plates ending in odd numbers are banned on Tuesdays, Thursdays and Saturdays, while those with license plates ending in even numbers are banned on Mondays, Wednesdays and Fridays. Peak period is defined to be between 7:00 AM to 9:00 AM and 5:00 PM to 7:00 PM. The penalty was set at P 300 per offense. Exempted from this regulation are public transport vehicles, emergency vehicles, police and military vehicles, school buses, diplomatic vehicles and official media vehicles.
In 1996, the MMDA issued Regulation 96-004 otherwise known as the “Modified Odd-Even Scheme” in addition to the existing Odd-Even Scheme. The Modified Odd-Even scheme applied to public utility vehicles such as taxis, buses, public utility jeepneys, etc., which are banned from all streets of Metro Manila on particular days of the week from 9:00 AM to 5:00 PM based on the plate number ending of each vehicle, as follows: 1 and 2 on Mondays, 3 and 4 on Tuesdays, 5 and 6 on Wednesdays, 7 and 8 on Thursdays, 9 and 0 on Fridays. This regulation took effect February 19, 1996 and covered all roads in Metropolitan Manila.
Also, in 1996 the Metro Manila Council, MMDA, adopted and promulgated MMDA Regulation 96-005 entitled the “Unified Vehicular Volume Reduction Program” regulating the operation of certain motor vehicles on all national, city and municipal roads in Metropolitan Manila and repealed MMDA Regulation Nos. 95-001 and 96-004. The UVVRP, commonly referred to as “color-coding”, was adopted from the previous “Odd-Even” scheme which was first implemented in December 1, 1995 by the MMDA together with the Philippine National Police. Under this scheme both public and private vehicles are banned for longer hours (i.e., between 7:00 AM and 7:00 PM). This regulation was first implemented last June 1, 1996 and is still in effect.
In early 2003, the MMDA temporarily suspended the UVVRP. The resulting mayhem, probably due to the abrupt reaction of car-users, forced the MMDA to restore the scheme. A variant of the scheme was later introduced with a window from 10:00 AM to 3:00 PM (i.e., the off-peak period within the day) when banned vehicles may travel. Not all cities and municipalities in Metro Manila, however, adopted the scheme due to its perceived detrimental effects on traffic in their respective areas. The prime central business districts of Makati and Mandaluyong prompted these cities to implement the UVVRP from 7:00 A.M. to 7:00 P.M. This created problems as many roads run through different cities and municipalities, especially the circumferential and radial roads. Thus, it is possible for a motorist to use his vehicle in a city adopting the off-peak period window and get apprehended in another city that enforced the UVVRP during the daytime.”
[Source: Regidor, J.R.F. and Tiglao, N.C.C. (2007) “Alternative Solutions to Traffic Problems: Metro Manila in Retrospect,” Proceedings of the 11th World Conference on Transport Research (WCTR 2007), 24-28 June 2007, University of California Transportation Center, University of California, Berkeley, CA, USA, DVD.]
I am aware of certain stories circulating among those in the transportation and traffic circle(s) claiming an even earlier concept of the Odd-Even scheme. All stories seem to eventually lead to Oscar Orbos who had a brief stint as Secretary of the Department of Transportation and Communications (DOTC) in the Cabinet of Cory Aquino in 1990. He is, of course, credited with the conceptualization and implementation of the “yellow lane” scheme, as lanes alloted for exclusive use of public utility vehicles have come to be known. An earlier version of the Odd-Even scheme has been attributed to him and, perhaps subject to verification, was claimed as among the reasons he was eventually relieved and transferred to another post. I say subject to verification because I do remember but faintly that there was a lot of talk about how to drastically lessen the number of vehicles along Metro Manila roads at the time. I was quite naive to such being a college junior at the time and was quite indifferent to policies that years later I would be evaluating and writing about. Moreover, it has been established that certain stories if allowed to circulate long enough gains the appearance of being true.
At this point, I am already tempted to provide a brief conclusion on the lessons and experience of vehicle restraint policies as implemented in Metro Manila. However, I would have to defer until after another post where the topic will be another vehicle restraint scheme, this time one that is even older than the UVVRP and its various incarnations. It is a scheme that has been subject to probably even more discussions and scrutiny given that it is a scheme other cities have implemented in various forms and had its share of successes and failures. I am talking about the “truck ban.”
Motorcycle lanes
There have been proposals to have exclusive lanes for motorcycles along major roads. The rationale for such proposals is the increasing number of road crashes involving motorcycles. It is assumed that having exclusive lanes will result in a significant decrease in motorcycle involvement in crashes since it is further assumed that with exclusive lanes, there will be fewer interactions among motorcycles and other motor vehicles. There are evidences to support these assumptions.
Anyone observing traffic along our roads can easily see that the biggest reason for the rapidly increasing number of road crashes involving motorcycles is the behavior of motorcyclists. Motorcyclists have the propensity to weave in traffic, heavy or not, often splitting lanes and catching drivers unaware. This behavior frequently results in crashes, most of which involve only damage to property and thus are usually relegated as minor incidents that are not newsworthy. However, crash statistics with both the MMDA (for Metro Manila) and the DPWH (for national roads) indicate that motorcycle crashes with fatalities are alarmingly increasing, and therefore require intervention. Motorcycles’ notoriety are now the among the pet peeves of many drivers, regardless of whether they drive cars, public transport or even trucks.
There are still many riders who do not wear helmets. And not a few bring their gear but choose not to wear these; a habit that has led to jokes about helmets being for elbows or shoulders rather than for heads. This is despite a Helmet Law stipulating penalties that are supposed to discourage non-compliance. The practice significantly increases the chances of having fatalities in crashes, especially considering that there are no restraints for riders or other protective devices for motorcycles like seatbelts and airbags that are already standard features for many other motor vehicles.
There is a bill filed before the Senate, SB 871, which stipulates the delineation of one-meter wide lanes for exclusive use of motorcycles. The bill has a provision directing the DPWH and local government units to designate motorcycle lanes, presumably for both national and local roads. SB 871 proposes fines (i.e., not more than six (6) years of imprisonment or a fine of not less than Five Thousand Pesos (PHP 5,000.00) but not more than Twenty Thousand Pesos (PHP 20,000.00), or both, at the discretion of the court) for motorcyclists using other lanes. There is no mention of penalties for drivers of vehicles encroaching on lanes designated for motorcycles.
While the bill is well meaning, it begs the question of whether its provisions are enforceable once the bill becomes a law given the extent of our national road system. After all, there are many laws that are not effectively enforced but were also designed to instill road discipline among drivers and riders, and to ultimately make roads safer for all users. And motorcycle riders are among those commonly seen as violators of road traffic rules and regulations.
In urban areas, for example, where many roads have multiple lanes, space for motorcycles may be derived from existing lanes but may lead to congestion due to the decrease in road capacities. In some cases, motorcycle lanes of at least one meter may be constructed by taking part of medians (e.g., islands) or shoulders. However, along roads where there are no medians, motorcycle lanes from shoulders may lead to conflicts with public transport vehicles that operate along the outer lanes of the road. Further, it is noticeable that there are no shoulders in most urban roads in the Philippines and there are also many instances where roadside parking is allowed or tolerated. And deriving motorcycle lanes from pedestrian rights of way such as sidewalks is definitely not recommended.
In the case of most national roads including rural highways, there are only 2 lanes and shoulders on either side that are most likely unpaved. Road rights of way are often unsecured, with structures such as houses and shops encroaching within the RROW and leading to shoulders being utilized for parking or other purposes. The DPWH Highway Planning Manual does not stipulate motorcycle lanes or even pedestrian walkways as standard specifications for typical national roads. And it is supposed that a law emanating from bills such as SB 871, should encourage if not mandate a review of road design standards to include provisions for motorcycles, and perhaps more importantly, for pedestrians and non-motorized transport (NMT) as well.
Other countries such as Malaysia have already incorporated in their road design manuals lanes that are for the exclusive use of motorcycles, bicycles and other NMTs. These have reportedly improved safety so much that their governments approved the budgets for implementing the provisions for roads where there is significant motorcycle traffic. Perhaps the Malaysian example is proof of the concept that having motorcycle lanes will indeed improve road safety. It should only be emphasized that road design improvements can go only so far if a key element, enforcement, is lax or nonexistent. Without this key element, motorcycle lanes in this country will just be destined for the ningas cogon hall of shame.
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For more information about motorcycle lanes and road safety, one may refer to the website of the International Road Assessment Program. They also have a Flickr account showing their activities in Southeast Asia.
Wang wang!
In the inaugural speech of Philippine President Noynoy Aquino, I and my colleagues were pleasantly surprised hearing him start with an item considered to be a pet peeve among multitudes of Filipinos – the use of sirens and blinkers. In fact, the reference to sirens as “wang-wang” puts it in the proper context where use is actually abuse. The “wang-wang” has been a symbol of how many of our government officials as well as those who perceive themselves as entitled have abused our traffic systems to get their way at the expense of others that they seem to believe have much lesser values of time compared to theirs.
Many who have been forced to surrender their sirens and blinkers state various reasons for doing so, including being professionals who needed to be in certain places at certain times. Among these are medical doctors and lawyers who have always claimed to be in a hurry, in the process of addressing emergencies of both the real and the imagined kind. While there are other opposing views on this, I firmly believe that the same people totally missed the point regarding the new president’s stand against “wang-wang” and his current personal crusade against beating the red light, counter-flowing, and the use of sirens by his own presidential convoy.
The statement should be pretty clear that only emergency vehicles may use sirens especially because they are responding to matters of life and death. These include ambulances, fire trucks and official police vehicles that should have distinct sounds according to international standards. The distinction is important for people to be able to recognize what type of vehicle is attempting to come through. But more importantly, the statement is also to show everyone, whatever his place in society may be, that the days of abuse are past and that this administration will do its part to bring back decency in our roads starting with the drive against “wang-wangs.” It is also actually an excellent case for leading by example, and one that hopefully can be sustained by P-Noy and adopted by his officials. For our part, we should make our own contributions and practice more discipline when we drive, commute or even walk along the street. It is not an exercise in futility but rather an exercise in humility and productivity – a demonstration of our commitment to change and help this country become great again.
Parking as an election issue – Conclusion
Parking as an election issue – Part 2
Parking or the lack of it for many establishments is partly due to the obsolete minimum parking provisions stipulated in the National Building Code. A review of this guide reveals extensive shortcomings that will always result in inadequate parking spaces when followed to the letter. In a recent project I was involved in, for example, following the NBC would have led to the conclusion (and God-forbid the recommendation) that 20 to 21 parking slots would be sufficient for a 245-bed hospital! Meanwhile, parking generation rates from abroad (Note: We don’t have local rates.) suggest a more realistic 431 slots.
Architects, engineers and developers are quick to interpret minimum parking space requirements as equivalent to the required number of slots. However, it is obvious that NBC minimum parking provisions will never be a sufficient basis for estimating the number of parking spaces to include in designs. Trip and parking generation rates have been developed in other countries and have been the basis for determining a suitable and reasonable number of parking spaces. These rates are based on trip or travel behavior and factors in typical dwell (parking) times for various types of land use. Thus, there are different parking generation rates for fast food joints when compared with fine dining restaurants. There are also different parking rates between condominiums and subdivisions, and the same applies to different types of offices.
The major shopping malls have become more aware of this and have provided more than enough parking spaces for car-using customers. In many cases, there is only the perception of parking being inadequate because drivers will also have preferences on parking space location within a lot or building. One shopping mall manager mentions that even during the Christmas holidays when mall trip generation typically peaks, their parking building’s top floors are not filled up and motorists would rather wait for slots on levels closer to the bridges to the mall.
One issue that is almost always raised by establishments regardless of type or size is the cost of providing parking spaces. Indeed, it is cheaper to mark spaces along the roadside or arrange for the use of vacant lots for the one’s purposes. But what happens when the same open lots are developed to make way for other buildings and road space is required to address traffic congestion? In the case of high rise condominiums, the cost of a parking slot is not included when one purchases a unit. The price of a slot can even be as much as a studio unit. Thus, residents would often resort to parking along streets or renting for overnight parking in nearby lots or buildings.
The experience in Makati has shown that parking can indeed become a serious problem. Makati streets were used as parking lots and office buildings could not accommodate the increasing number of vehicles owned by employees who were becoming more and more capable of buying cars. The latter is a natural phenomenon due to continuing economic development and the resulting increase in incomes. Those who can afford new cars would probably purchase one (or more) while those with less budget will acquire used vehicles. It took some time before Makati was able to build parking buildings and enforce strict roadside parking policies including pay parking managed by the city’s parking unit.
Schools are major traffic generators attracting many car users. Some campuses are fortunate that they have vacant lots or seldom used roads at their disposal. However, as one can see through fences, committing vacant lots to parking is not at all the wisest usage for such space. And as one song goes, should we “pave paradise to put up a parking lot?” On the other extreme, and there are many such cases, schools do not have the space for parking. One such school along Ortigas Avenue imposes its parking problems on the general public when cars and school service vehicles take up lanes along the major arterial as well as occupy sidewalks while waiting for their passengers.
For public places like churches, parks, markets and the like, accessibility to public transportation is often used as an excuse for not planning and providing for parking spaces. The argument is that since these are public spaces, they attract mostly commuters. What is not stated is the reality that these same public spaces also attract car and motorcycle users that when proportioned with commuters would require a significant number of parking spaces. This is very much the observation near places of worship, public markets and parks where traffic congestion is likely caused by vehicles parked along streets and even on sidewalks. [In many cases, there aren’t even sidewalks so people use the streets anyway.]
[Next: The case of Quezon City, and Conclusion]
Parking as an election issue – Part 1
A magazine article caught my attention the other day. A candidate for councilor of Quezon City, the largest city among the units comprising Metro Manila, mentioned that the candidate was against pay parking and that if elected will oppose all initiatives for pay parking in public places in the city. Further, the candidate made statements to the effect that free parking for churches, markets and schools should be guaranteed by the government.
While I am tempted to trash the candidate for being moronic in his/her view of such issues as parking fees, I will resist such temptation. Instead, I offer here my arguments “for” pay parking and let the reader assess for himself/herself if a stand against parking fees could hold water. First off, allow me to trace the origins of this issue. I believe it was last year when a local bill was filed at the Quezon City Council seeking to charge parking fees for parking slots constructed by the Quezon City government along major streets including Tomas Morato. If my recollection is correct, the parking spaces were part of a bigger project that also constructed decent sidewalks along the same streets. It is important to note here that these were projects funded by local funds and therefore were sourced from taxpayers money. It should also be noted that among the justifications for the project were the expected alleviation of congestion along the roads, considering that there was a propensity for on-street parking or waiting, and the lack of sidewalks have resulted in pedestrians also using the carriageway.
One aspect of the problem that was rarely if ever it was mentioned was the fact that the parking spaces were constructed in high activity areas where establishments failed to provide an adequate number of spaces for their customers or clients. Many of these are restaurants and shops (e.g., the ones along Morato) while there are also examples of schools and churches. I say “failed to provide” here because it is quite obvious to even the untrained observer that establishments like restaurants and bars attract many people. In the case of those along Morato, the people attracted are most often the ones who have cars. When you attract a lot of cars and do not have the spaces for them to park along, it doesn’t take a genius (or even a 6th grader) to arrive at the conclusion that there will be traffic congestion in the area. Such congestion is the result of cars being parked almost anywhere where there is open space and that includes part of if not an entire lane of the road.
[Next: Trip and parking generation concepts]
Caught (up) in traffic 