Cebu City BRT Project - NPVillarete

Metro Iloilo - Guimaras Economic Development Council (MIGEDC)
Urban Transport Summit

Iloilo City, August 20, 2010
organized by the
JICA-assisted Multi-Stakeholder Transport Planning and Traffic Management Project
The Cebu City BRT Project

NIGEL PAUL VILLARETE
City Planning and Development Coordinator
Cebu City Government
Outline
Introduction to Public Transport Planning,
Operations, & Management (adapted from WB-PPIAF)
Key Cebu City Urbanization Trend and

Challenges, Transport and Environment Issues
Metro Cebus Transport Corridors
The Cebu City BRT Initiative
Introduction to Public Transport

Planning, Operations, and
Management
Presentation adapted from the
World Bank/Public-Private Infrastructure Assistance Facility
(PPIAF)
Far-Reaching Impacts of Transport

Transport effects almost every aspect of life
in cities
Economic, land development

Environmental quality
Health
Social equity
Solving urban transport problems requires

an understanding of variety of factors
Economic
Financial
Political
Land Use
Urban
Transport
Geographic
Environment
Urban
Design
Travel
Options
Social
I-5
Urban Transport Concerns

Congestion
Mobility and access
Sustainability
Health (Safety, Air Quality)
Land Use
Energy
Climate change
Economic/social development
Existing system
Symptom: Traffic Congestion
Possible Cause of Congestion

Land Use
Poor land use, site planning
Decentralization
Widely scattered, single-purpose
developments
Site planning not pedestrian or public
transport friendly
Site planning forces auto dependency
Pedestrian and Public Transport

Unfriendly Development:
Electronic City Bangalore

Demand Side Changes
Explosive population, income and
motorization growth
Changing demographics
Declining household sizes (grown children
moving to own residences)
Younger/older population
Changing origin-to-destination patterns

More destinations outside City Center

Supply Side Changes
Non-Motorized Transport
Declining space dedicated
Right-of-Way (ROW) encroachment
Public transport system

On-street, poorly regulated competition
Route structure does not match travel needs
Insufficient capacity in major corridors
Roads
Poor design/condition /connectivity
Ineffective parking /traffic management
Poor enforcement of traffic rules
Poor Pedestrian Environment

Panjin
ECA
Indore
ECA
Bangalore
Poor Traffic Engineering, Service

Planning, Enforcement
Ineffective Traffic Management
Incomplete Arterial Grid
Bangkok
Manila
Manila
Poor/No
Secondary
Street Network,
Encroachment
Raipur
Bangkok
Fushun, China
Chenai
Manila
Kolkata
I-16
Poor Roadway Design
Ring Road 3 Beijing
Important Strategic Transport

Concerns Beyond Congestion
Congestion
Mobility and access
Sustainability
Health (Safety, Air Quality)
Land Use
Energy
Climate change
Economic/social development
Existing system
Mobility and Access for Women,

Children, Elderly, Disabled
A Forgotten Concern
Depends on availability of safe, secure
Public Transport
Sidewalks, bikeways
Special Needs PT
Bangalore
Separate PT Services
for Women, Children
and the Elderly
Local Emissions
WRI
A Major Health Hazard
Motor Vehicle Safety
Ineffective Institutions and

Structure Can Block Progress!
Uni-modal planning, operations, management
No formal priority setting, linkage to investment
decisions
Missing public transport modal integration
Service. fares
Supply, not market driven
Poor regulation of informal sector transit providers

Lack of essential technical skills in urban transport
planning, management, operations
Little $ for planning, data collection, analysis
Effects of Poorly Regulated

Private Sector Public Transport
Istanbul
Too Many Buses,

Drivers Behaving Poorly
Manila
Lima
Bogota (Before)
Lagos
Dar es Salaam
Conclusions
Transport concerns are more complex
than just congestion
Solving urban transport problems
requires an understanding of variety of
factors
The Cebu City Situation
Geographical Location
Cebu is the oldest settlement in the country
(1571)
Metro Cebu, is comprised of 10 LGUs
4 cities of Cebu, Mandaue, Lapu-Lapu and

Talisay, and the 6 municipalities of Naga,
Minganilla, Liloan, Consolacion, Cordova and
Compostela
defined by the Cebu Integrated Area Development
Master Plan Study (CIADMPS) in 1994
City Profile
Development Challenges
population (2000): 718,821
population density (2000): 1,990 persons/sq.km.

(urban area: 7,753 persons/sq. km.)
area: 326.10 sq. kms.
2/3 of population is in 15% of total area
constrained by the sea in the east and

mountains and hills in the west
population growth rate (1999-2000): 1.73%
recent out migration of people to neighboring

cities and municipalities
City Transport Profile

road network
capacity is insufficient due to narrow roads
insufficient network of roads (links, hierarchy)

motorization: number of vehicles
annual growth rate (1994-2000): 7%
annual growth rate (2000-2006): 4%

travel demand
private modes: 9.7% (1979) to 20.6% (1992)
public modes: 90.3% (1979) to 79.4% (1992)
Urbanization Trend
Population
City/ Municipality
2000
% Share
2007
%
Share
Population
Growth Rate
Cebu City
718,821
42.44
798,809
38.97
1.52%
Mandaue City
259,728
15.33
318,575
15.54
2.96%
Lapu-Lapu City
217,019
12.81
292,530
14.27
4.36%
Talisay City
148,110
8.74
179,359
8.75
2.77%
Naga
80,189
4.73
95,163
4.64
2.48%
Minglanilla
77,268
4.56
101,585
4.96
3.99%
Liloan
64,970
3.84
92,181
4.50
5.12%
Consolacion
62,298
3.68
87,544
4.27
4.98%
Cordova
34,032
2.01%
45,066
2.20%
4.09%
Compostela
31,446
1.86%
39,167
1.91%
3.19%
100.00
Total
1,693,881of 798,809
100.00%according
2,049,979
Ave an
2.76%
Cebu City has
a population
to the 2007
% Census,
increase from 718,821 in the 2000 Census. The annual population growth rate
for the period in 1.52%. All other adjacent cities and municipalities
recorded much higher population growth rates for the same period
Travel Demand
The share of trips using the private modes increased from 9.7% in 1979 to
20.6% in 1992 while the share of trips using public transport decreased
from 90.3% in 1979 to 79.4% in 1992. It is anticipated that the Metro Cebu
will experience an increasing rate of person-trips due to rapid population
growth and urbanization
Metro Cebu Travel Demand[1], 1979-2020

Mode
Private
1979
1992
2012*
2020*
110,500
9.7%
305,666
20.6%
515,416
17.1%
989,910
23.5%
Public
1,028,900
90.3%
1,180,408
79.4%
2,492,066
82.9%
3,229,717
76.5%
Total
1,139,400
100.0
1,486,074
100.0
3,007,482
100.0
4,219,627
100.0
Trip Rate
1.10
1.26
1.54
1.61
Notes: *projected using regression

Source: Cebu City CLUP (2000)
[1] Based on the 1979 Metro Cebu Land Use and Transport Study (MCLUTS)
report and the 1992 Home Interview Supplemental Survey conducted by the
Metro Cebu Development Project (MCDP) for Phase 3.
Key Transport and Environment Issues

300
276
261
250
TSP Concentration
(mcg/N. cu. M.)
238
212
200
193
150
151
148
143
138
127
100
94
90
113
117
81
72
90
88
69
50
49.02
83
39.9
0
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
Year
DENR Region VII Office
Pardo Baranggay Hall
Langtad, Naga, Cebu City
Oportos Residence, Cebu City
Canos Residence, Cebu City
Guideline Value for TSP (1-year) = 90 mcg/N. cu. m.
CENRO N. Bacalso Ave.

Tonggo, San Fernando, Cebu City
Inayagan, Naga, Cebu City
Baricuatros Residence, Cebu City
Valuerich Farm
Annual Average Concentration of Total Suspended Particulates (TSP) in

Cebu City and Other Cities in Metro Cebu, 1995-2006
Data Sources: 2002 and 2003-2004 National Air Quality Status Reports, Department of Environment and
Natural Resources Environmental Management Bureau (DENR-EMB) and DENR-EMB Region VII
3434

80
PM10 Concentration
(mcg/N. cu. m.)
71
60
71
60
47
40
29
20
0
2001
2002
2003
2004
Year
USC-TC Monitoring Station
Mactan Export Processing Zone
Camp Forestal
San Miguel Brewery, Cebu
Guideline Value for PM-10 (1 Year) = 60 mcg/N. cu. m.
Annual Average Concentration of Particulate Matter (PM10) in Cebu City and

Other Cities in Metro Cebu, 2002-2003
Data Sources: DENR-EMB Region VII
3535

economic cost of air pollution
Cebu City ranked second to Metro Manila in derived
costs, which in 2001, was equivalent to US$16 million
Estimates of Health impact and Costs by PM10 in Cebu City for 2001
PM10
Annual
Respiratory
symptoms in
average Population Excess
Chronic
City
in million
deaths bronchitis
millions
(ug/m2)
Metro
Manila
65.8
10.04
1915
8,439
50.5
Cost in
millions
US$
392
Davao
39.8
1.018
83
429
2.6
15
Cebu
45.0
0.730
170
336
2.0
16
Baguio
75.2
0.260
49
262
1.6
Total
12.048
2217
9,466
56.7
432
Source: Philippines Environment Monitor 2002 (World Bank, 2002)

road safety
number of accidents in 2000-2006 ranged from a level of
14,000 in 2000 to around 10,000 in 2006 (relatively high)
60
16,000
14,431
14,502
14,000
14,023
55
12,000
56
55
12,339
11,223
10,461
10,000
50
8,000
45
6,000
43
4,000
41
41
40
TOTAL
39
2,000
Fatalities
35
1999
2000
2001
2002
2003
2004
2005
2006
2007
Year
Annual Accident Data, Cebu City, 2000-2006

Data Sources: Cebu City Traffic Operations Management (CITOM, 2007)
No. of Fatalities
Number of Accidents
57
12,914
Where are the Main Transport

Corridors in Metro Cebu?
How do they look like?
How did they evolve?
Evolution of Metro Cebu's

Transport Corridors
This is how Metro Cebu LGU's are arranged

Transport Corridors
This is how it looks in 1944 ...

Transport Corridors
Plan 2 of the 1980 Metro Cebu Land Use and Transport Study
(MCLUTS)

Transport Corridors
The Structure Plan of MCLUTS (1980-2000 Plan)

Transport Corridors
In 1989, the 3-corridor concept was proposed
Evolution of
Metro Cebu's
Transport
Corridors
The three (3)
transport
corridor system:
Private
Public
Industrial
But how did the Cebu City Initiative for

the Bus Rapid Transit start?
What steps were undertaken and how did
it come to a point where it is now?
(1 technical study completed 2 ongoing)
What were the challenges along the way?
The Cebu City

Bus Rapid Transit (BRT) Initiative
It started with Curitiba, Brazil.
In 1996, Mayor Tomas Osmea went to
visit Curitiba with city traffic managers to
see their bus system which was gaining
worldwide popularity
This was after he was mayor of Cebu
City from 1988 1995.
Cebu City BRT how it started ...
The Cebu City

When they came back, they shared what they
learned to the then city leadership.
Specifically, through its political leader, Mayor
Osmea (a private citizen then), the city
started to slowly move to two very important
governance policy changes reflective of the
transport and environment strategies of
Curituba.
The Cebu City

The two policy directions are:
Land use planning and transport planning

cannot be separated: Osmea preferred
drawing out the transport corridors first, before
laying the land use along it;
Public Transport comes first, before Private

Transport
. . . both policies run counter to conventional wisdom

The Cebu City

Between 1996 and 2001, not much was
done on the strengthening of these two
policies and the establishment of a bus
system similar to that of Curitiba, Brazil.
CITOM continued to identify corridors
and probable bus stations. Different LRT
studies between 1992 and the present
provided much information on these.
Light Rail Transit (LRT) Initiatives

for Metro Cebu
1992 Pre-Feasibility Study for a Mass

Transport System for Metro Cebu.
1996 Technical Study for a Metro Cebu LRT

submitted to DOTC
1999 Feasibility Study for Mega-Cebu

LRT/Rail Service
2005 Unsolicited BOT Proposal submitted by

AMA Group (still pending)
It is significant to note that in all these initiatives,
the Cebu City has opposed their approval
The Cebu City

In 2001, Mayor Osmea got re-elected
as mayor and revived his vision for an
efficient bus system in Cebu City.
CITOM attempted to steer to a new and
less difficult strategy The Stairless
Jeepney concept. After a few technical
studies, it was concluded that it wont
work as efficiently as desired.
The Cebu City

In 2007, Cebu City officials attended a
forum with Enrique Pealosa, former
mayor of Bogota, Columbia.
At about the same time, Cebu City
started to discuss the BRT proposal with
the DOTC, World Bank, JBIC, and ADB.
Cebu City also joined in the EST

consultations with DOTC and UP-NCTS.
The Cebu City

In 2008, Cebu City solicited the help of
partner agencies for the promotion of a
BRT system in Cebu DOTC, UPNCTS, USAID-ECAP, CAI-Asia.
In April of 2008, Cebu City submitted a
request for assistance from PPIAF for a
BRT demonstration corridor study for
Cebu City through the World Bank
The Cebu City

Sept. 4-5, 2008, with the help of our
partners, 4 sessions of seminars were
held for different sectors in Cebu City
urban poor, politicians, transport groups,
and academe.
In September also, ADB-CDIA started a
T/A study for the South Reclamation
Proj. Which included a BRT system.
The Cebu City

Nov. 10-11, 2008, through the aid of CAIAsia and ADB-CDIA, we invited Mayor
Pealosa to speak in Cebu City in
relation to the BRT implementation in
Bogota, Columbia.
The visit of Mayor Pealosa has stirred
much interest in Cebu for the realization
of its desired BRT system.
The Cebu City

September 2008, DOTC has committed
to finance the Public Transport Strategic
Plan for Metro Cebu.
January 2009 World Bank announced
the approval of the PPIAF study;
Today, there are three (3) studies being
done for the Cebu City BRT.
The Cebu
City
Bus
Rapid
Transit
(BRT)
Initiative
of course
this helps
Cebu City BRT
how it started ...
The Cebu
City
Bus Rapid
Transit
(BRT)
Initiative
OR
THIS!
Cebu City BRT
how it started ...
Probable Metro Cebu Public

Transportation/BRT Corridors
The Challenges:
More Questions to Ask ...
- The Technical Questions
- The Political Questions

- The Institutional/Financial Questions
- The Social Questions
Paris
Mexico
Florida
Manila
Cebu
Motorcycles in Cebu
Study and Concept Plan for a

Demonstration BRT Corridor
The BRT Pilot Route

CBD option appraisal
Include route between
Ayala and SM
Links to SRP
Deliver in phases
The Study So Far

Focus groups with transport
users
Mystery traveller surveys
User interviews
Walking survey of route
Ethnographic study
Policy and Technical Group
Meetings:
DOTC
LTFRB
CITOM
Public transport operators
organisations
Key User Issues What people Expect

From New Public Transport System
Good friendly staff. Older male
Fare, if possible, must be affordable Older female
I want a spacious and comfortable seat where I am in.
Younger female
Security on the BRT for safety purpose. Younger male
If BRT is in, Jeepney should be out. Car user
I want a shorter waiting time for the vehicle to arrive. Buses
must arrive at the expected time. Young female
BRT Concept Issues
Median with Median Stations
Tranasmilenio, Bogota, Columbia
Median with Bilateral Stations
Changzhou, China
Bilateral
Lagos, Nigeria
At grade pedestrian crossings, or,

Footbridges
Brisbane, Australia
Nantes, France
A Closed or Open System?

Direct system
Feeder - Trunk system
Payment
Smart cards?
A closed station environment

Pay on station entry?
Image, Comfort, Convenience
Issues to be Resolved
Who regulates the system?
Who manages?
Who operates?
How to best involve existing operators
Minimising social impacts
Maximising environmental benefits
What BRT in Cebu May Look Like
What BRT in Cebu Might Be Like
Thank you!
The Cebu City BRT Project
PAUL VILLARETE
City Planning and Development Coordinator
Cebu City Government

Cebu City BRT Project - NPVillarete

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Metro Iloilo - Guimaras Economic Development Council (MIGEDC)

Urban Transport Summit

The Cebu City BRT Project

Key Cebu City Urbanization Trend and

Metro Cebus Transport Corridors

The Cebu City BRT Initiative

Introduction to Public Transport

Far-Reaching Impacts of Transport

Economic, land development

Solving urban transport problems requires

Urban Transport Concerns

Symptom: Traffic Congestion

Possible Cause of Congestion

Pedestrian and Public Transport

Electronic City Bangalore

Possible Cause of Congestion

Changing origin-to-destination patterns

Possible Cause of Congestion

Public transport system

Poor Pedestrian Environment

Poor Traffic Engineering, Service

Ineffective Traffic Management

Incomplete Arterial Grid

Poor Roadway Design

Ring Road 3 Beijing

Important Strategic Transport

Mobility and Access for Women,

Motor Vehicle Safety

Ineffective Institutions and

Supply, not market driven

Poor regulation of informal sector transit providers

Effects of Poorly Regulated

Too Many Buses,

The Cebu City Situation

Metro Cebu, is comprised of 10 LGUs

4 cities of Cebu, Mandaue, Lapu-Lapu and

population (2000): 718,821

population density (2000): 1,990 persons/sq.km.

area: 326.10 sq. kms.

2/3 of population is in 15% of total area

constrained by the sea in the east and

population growth rate (1999-2000): 1.73%

recent out migration of people to neighboring

City Transport Profile

capacity is insufficient due to narrow roads

insufficient network of roads (links, hierarchy)

annual growth rate (1994-2000): 7%

annual growth rate (2000-2006): 4%

private modes: 9.7% (1979) to 20.6% (1992)

public modes: 90.3% (1979) to 79.4% (1992)

Metro Cebu Travel Demand[1], 1979-2020

Notes: *projected using regression

Key Transport and Environment Issues

CENRO N. Bacalso Ave.

Annual Average Concentration of Total Suspended Particulates (TSP) in

Key Transport and Environment Issues

Annual Average Concentration of Particulate Matter (PM10) in Cebu City and

Key Transport and Environment Issues

Source: Philippines Environment Monitor 2002 (World Bank, 2002)

Key Transport and Environment Issues

Annual Accident Data, Cebu City, 2000-2006

Where are the Main Transport

How did they evolve?