LOCAL PUBLIC TRANSPORTATION ROUTE PLAN – BUTUAN CITY
CHAPTER 5
5.1
–
PUBLIC TRANSPORT ISSUES AND PROBLEMS
Public Transport Issues/Problems
The poor state of the city’s urban transport system ranked third in the infrastructural
sectoral issues as reflected in the City Development Plan 2020-2022.
Public transport issues/problems hound the development of a proper urban transport
system that is aligned to the city’s development aspirations and frameworks. These
may be categorized into Policies and Plans, Infrastructure Facilities, and Transport
Services.
Policies and Plans
The Road Network Master Plan for the city is already outdated. In updating the
Master Plan, it should be aligned with the Comprehensive Land Use Plan (CLUP),
Comprehensive Development Plan (CDP), and the Local Public Transport Route
Plan (LPTRP). The Master Plan will then serve as guide in identifying, prioritizing,
design, budgeting, and decision making among policy makers. Interventions in the
form of bypass roads and urban roads improvement projects- road widening and
construction of interchanges at crucial intersections can improve traffic flow in urban
areas and mitigate the negative effects brought about by traffic congestion.
Absence of a Comprehensive Urban Traffic Management System. Traffic
congestion within the urban city streets especially during peak hours is highly
increasing. This is caused by the increased volume of vehicles, narrow roads in the
old district area and limited alternate routes. The upgrading of traffic signaling
system is necessary to improve traffic flow and safety for both motorists and
pedestrian. New intersections should be identified and established to decongest
heavy traffic corridors. Moreover, interventions using new technology can help in the
traffic impact analysis, which in turn can help decision makers in solving traffic
issues. A traffic control center should be established as soon as possible to manage
the city’s traffic system.
Local Public Transportation Route Plan (LPTRP) is not yet institutionalized.
The LPTRP will rationalize existing public transportation routes and develop new
routes aligned with the city’s development plan. Once approved, the city ordinances
pertaining to traffic routes will now be updated to suit the needs of the riding public.
Moreover, in compliance with the PUV Modernization Program, re-fleeting of
dilapidated and environmentally unsustainable public utility vehicles (PUV) will be
possible once the LPTRP is approved and implemented and will afford the public
with reliable, environment-friendly safe, secure and efficient public transportation.
Lax implementation of DILG Road Clearing Policies. Highways and other road
networks are often used as parking for trucks, cars and other vehicles that has led to
limited use of these roads for transportation and may even lead to accidents. Some
of these major road networks are being used for drying of palay and corn, and
vending. Road clearing should be regularly undertaken to reduce congestion and
accidents.
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Over release of tricycle franchises. Since there has been no study in the past
pertaining to actual demand for tricycles and route planning, this has led to the over
release of franchises, especially the Orange tricycles. The Tricycle Route Plan (TRP),
which will be formulated after the LTPRP will endeavor to correct this. Tricycles
should act as feeders to public utility vehicles following the hierarchy of road
functions and not overlap with the operations of PUVs.
Infrastructure Facilities
A considerable length of road networks remains unpaved. From the total road
length of 584.3 kilometers, around 326.7 kilometers or 56% of roads are unpaved. Of
the total unpaved roads, 95% or 311 kilometers are barangay roads. This situation
affects people’s mobility and movement of goods.
Road Right of Way Problems. Road-Right-of Way issues contribute to the nonimplementation as well as the non-completion of different infrastructure projects.
Houses and other establishments in Butuan City are still within the construction limit.
There is also an experience of delay in compensation on the affected property.
Incomplete submission of require documents will cause the delay of payments for all
claimants and unacceptable assessment value of property.
Lack of Integrated Terminal Exchange (ITX). Currently there is one bus terminal, a
sub-terminal for buses and UVE vans, a PUJ terminal, and a UVE terminal that is
being used by tricycles. The bus, jeepney, and UVE terminals are located in
Langihan District, where the markets are and in itself a congested area, which
became much worse because of the presence of these terminals.
There is a need to build an ITX, which is an integrated and multi-modal terminal, that
should be located in an area outside of the downtown area, or anywhere else that it
is not already congested as it would only lead to more problems. This ITX should be
state-of-the-art, with computerized ticketing/booking system, dispatch system that
results to reliable and efficient travel, and other amenities.
The ITX will serve as a hub for various public transport such as PUBs, UVE, and
PUJs and Taxis that can take passengers to the city proper. It is where people can
seamlessly transfer from one denomination to another within the same facility for
security and convenience. The ITX will help ease traffic congestion in the city proper
as these inter-provincial and inter-regional transport unit will no longer enter it.
No properly-designated loading/unloading areas and signages. One of the
major contributors to traffic congestion in the city is the indiscriminate
loading/unloading of passengers wherever and whenever the driver or passenger
wants. The LPTRP seeks to address this by identifying designated loading/unloading
areas based on actual study. Preferably, and based on the criteria in the LPTRP
Manual, loading/unloading areas must at least 50 meters away from any intersection,
and preferably an off-street lay-by area at the side of the road similar to SM and
Robinsons.
Lack of Parking Spaces for establishments especially in the Poblacion Area.
Another contributor to traffic congestion is the lack of parking spaces leading to
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indiscriminate parking that constricts the already narrow streets in the Poblacion
area. Although there is an ordinance prohibiting parking in these streets and to some
extent allow parallel parking only in one lane, the lack of infrastructures has led to
rampant violations of the ordinance. It is highly suggested that a multi-level parking
be built in the downtown area, which could be through a PPP mode. Further,
legislation should be in place requiring would-be constructed establishments to have
ample provision for parking.
No off-street terminals at various route end points. Inrta City PUJs are operating
on a loop without a designated end-point, which is a very unreliable and antiquated
manner to operate PUVs since there is no proper fleet management. The LPTRP will
be addressing this problem. However, infrastructures should also support this
through off-street terminals, like in Barangays Dumalagan, Ampayon, Sto.Niño, De
Oro, Tungao, and Maguinda. Off-street terminals will ensure the safety of
passengers and the reliability of public services. This will ensure that drivers will ferry
the passenger to the end point instead of cutting their trips.
Defective traffic lights and lack of traffic lights in other high traffic corridors.
Traffic lights are very important in ensuring smooth traffic flow and reduce incidents
of car crashes and collisions especially in intersections.
No bike lanes. Active transport should be encouraged in the city. Not only does it
promote healthy lifestyle, but it can also help decongesting the city thoroughfares by
encouraging workers and students to use bikes to and from their destinations. To
support this endeavour, bike lanes must be integrated into city thoroughfares to keep
cyclists safe from accidents.
Transport Services
Trip cutting by Intracity PUJs. Various endpoints are unserved by intracity PUJs
due to trip cutting. This is prevalent in Dumalagan, Sto. Niño, and De Oro. R1, R2,
R4, and R10 are supposed to ferry passengers up to Dumalagan. However, PUJ
drivers tend to cut their trip up to Libertad or Bancasi only, leaving residents in
Dumalagan with no choice but to patronize habal-habal which is not a legal public
conveyance or tricycles, which are not supposed to traverse in the national highway.
On the other hand, R8 PUJs are supposed to go all the way to Sto. Niño, and De
Oro for R7 PUJs, but drivers usually cut their trip up to Ampayon only. The LTFRB
and the LTTMO must work hand in hand in ensuring that violators are apprehended
and penalized.
No service plan and fleet management plan. Intra city PUJs are operating on a
loop system, without definite origin and end point. This results to a very inefficient
system, wherein drivers just operate whenever they want to and where they want.
With a service plan and fleet management plan, reliability of public transportation
service is ensured, so that there is always available service from the time
passengers usually take a ride towards work, school, and other destinations, up to
night time when workers and students usually go home.
Old and dilapidated PUVs. Majority of intra city PUJs are using surplus jeepneys
which are environmentally unsustainable, and unsafe. Part of the component of the
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PUV Modernization Program is fleet substitution from traditional jeepneys to modern
PUJs that have bodies that are wider, and have more comfortable interiors, and
which have safety and security equipment, with cashless system. Local legislation
may be passed to support this endeavor so that a precondition for the issuance of
mayor’s or business permit is a fleet modernization plan.
Lax implementation of tricycle ban on highways. Under DILG Memorandum
Circular No. 2020-036, tricycles are not allowed to operate on national highways
used by 4-wheel vehicles greater than 4 tons and where normal speed exceeds 40
kph. This is a very prudent guideline from the DILG to ensure less accidents in the
highways. Tricycles are slow moving vehicles and oftentimes occupy fast lanes,
which have resulted to accidents. Moreover, based on feedback from PUJ operators,
one major reason that they are hesitant to invest in modern units is the presence of
tricycles competing in their operations. The LTTMO must be firm in enforcing this
ban. However, a long-term solution is the Tricycle Route Plan (TRP) that would,
among others, identify the various zones that tricycles can operate in, as feeder to
the PUV routes.
Other issues/problems. Some of the other issues/problems identified are arrogant
behavior of drivers, conductors, and dispatchers, lack of public transport vehicles
and long waiting time, overcharging of fares, lack of discipline of drivers, traffic code
not properly implemented, commuters and drivers are not aware of city traffic
ordinances, and decrease in transportation cost due to the presence of dispatchers
and canvassers.
5.2
Development Constraints
The city’s development is being hampered by various constraints, which are
identified below:
Terrain conditions and Unpaved Roads. As mentioned above, from the total road
length of 584.3 kilometers, around 326.7 kilometers or 56% of roads are still
unpaved, 95% of which are in barangay roads. 306.3 kilometers of barangay roads
are graveled and 4.8 kilometers are still earth surfaces. Unpaved roads limit
development in the area since it would also affect public transportation and
movement of goods. Paved roads attract more residential, commercial, and
industrial relocators because of the ease in transportation.
Limited connectivity of rural barangays. Far-flung barangays have limited
connectivity to the downtown area where most of government transactions and
commercial establishments are located. Development routes under the LPTRP will
ensure the mobility and access to services in these areas.
Rapid urbanization. As earlier discussed, the city’s level of urbanization is at 69%
as of 2020, or 256,045 of its total population lived in areas classified as urban areas.
Moreover, five additional barangays will most likely to be classified as urban
barangays by 2025 and will likely push the urban population to 311,219, and
increase the city’s level of urbanization to more than 75%.
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Population growth is now spilling over into what was used to be classified as rural
areas of the city outing pressure on the city’s services and utilities, and a swelling of
informal settlers and doubled up housings or dwellings shared by two or more
families.
However, with the implementation of the city’s development plans and the
identification of development areas and special development areas, this will
generate job opportunities even in rural areas so that development will be spread out
and those living in rural areas don’t need to live in urban barangays as they seek
employment there.
Limited access to water supply and sanitation. There is limited access of
households to potable water. Based on BCWD data, only 59 out of the 86 barangays
are served, and out of this 71% are served with potable water. However, of the 71%,
only 86.48% are served with Level III quality of water.
There is also no centralized wastewater collection, treatment and disposal, and there
is no existing sewerage and septage treatment facilities in the city.
Water infrastructures are also vulnerable to various hazards such as soil erosion,
earthquake-induced landslides, rain-induced landslides, and flooding.
Climate and Disaster Risks. Based on the city’s CLUP, various hazards were
identified such as flooding, rain-induced landslides, storm surges, ground rupture,
and earthquake- induced landslides.
Butuan City experience flooding especially in the low-lying barangays and near the
Agusan River, which sometimes swells and overflows. Of the 86 barangays, 71 are
identified as highly vulnerable to flooding. Moreover, 12,895 hectares of land, 44,673
people, 25 barangay centers, 24 bridges, 1 cell site, 64 health facilities, 130 schools,
56 water infrastructures, and 25,258.48 kms of roads are highly vulnerable to floods.
Another problem is the presence of residential houses and buildings on riverbanks
and easements.
For other types of hazards, 27 barangays were identified to be highly susceptible to
rain-induced landslides, 10 barangays are highly vulnerable to storm surges, 11
barangays along the fault line for ground rupture, and 5 barangays in active fault
lines are highly at risk to earthquake-induced landslides.
Lack or limited TelCo/ISP interconnections and unstable broadband
connectivity. There is poor, limited, intermitted signal in some remote areas.
Particularly, there are 17 barangays identified with poor signal.
Poor Solid Waste Management. There is limited waste collection coverage,
handling and processing, and inadequate waste disposal facilities. There is lack of
solid waste management technologies in the city. Moreover, there is limited
coverage of waste collection because only 50 of the 86 barangays are covered.
Waste minimization strategies are not also fully implemented and the MRFs are not
functional. Additionally, 32.69% of the households in the city do not have water
sealed sewer with exclusive septic tank.
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LOCAL PUBLIC TRANSPORTATION ROUTE PLAN – BUTUAN CITY
CHAPTER 6
6.1
–
PUBLIC TRANSPORT DEVELOPMENT OBJECTIVES AND
STRATEGIES
Socio-Economic Development Goals
Butuan City’s overall development framework is anchored on the nation’s Ambisyon
Natin 2040, and Caraga Region’s vision of FAmE.
Under its CLUP for 2019-2048, the following vision and mission statements are
stated:
VISION STATEMENT: “a great hub city of opportunities for all that spurs and
supports Caraga’s sustainable growth and development”
MISSION STATEMENT: “Butuan City will strive to achieve a vibrant, smart eco-city
that is sustainable, livable, resilient and competitive”
In support of these, the city intends to push for Sustainable Growth and
Development, and Resiliency. It also developed a spatial development strategy that
seeks to decentralize growth and development nodes with specialized roles outside
of the Poblacion area.
On the other hand, under the city’s Comprehensive Development Plan(CDC), its
sectoral goals were identified as follows:





To become a secure, empowered, and culture-oriented citizenry as well as
achieve disaster-resilient, climate change adaptive, inclusive, and sustainable
social development.
To improve the economic wellbeing and quality of life of Butuanons, promote
a robust industry and tourism, develop a sustainable agri-fishery sector, and
foster an ascending, competitive and inclusive local economy.
To have climate-adaptive, innovative, and safe infrastructure.
To ensure a sustainable (green), clever (smart) and resilient environment
To have an inclusive, efficient, effective, transparent, accountable, and
gender responsive governance.
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Figure 59. Butuan City’s Strategic Framework
6.2
Transport Development Plan
A sound Public Transport Plan is needed as it lowers the costs of moving people and
goods, which in turn increases economic productivity, which would consequently
lead to a higher standard of living. An efficient transport system allows easier
movement of workers from households to their workplace, especially in the
development areas already identified, and access to public services and commercial
establishments where they get their foods and other essential needs.
Improving public transportation is key to development as it is essential to economic
growth and good quality of life. This is why if we look at the National Spatial Strategy
(NSS) for 2015-2045, one of the key principles of spatial development that was
identified was the integration of leading and lagging areas and urban-rural linkages
through transportation. This clearly underscores the role of transportation in national
development.
The NSS provides the geographic development challenges and opportunities in
population and economic growth.
The NSS has identified Butuan City as one of the major growth centers, and the
main regional center that serves as the major trading, processing, commercial and
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service center of the region, as well as, the show window of history and culture in
Mindanao, to achieve Caraga Region’s goal to become the Fishery, Agro-Forestry,
Mineral and Ecotourism (FAmE) Center of the country.
In support of the city’s goals, the Master Plan for Sustainable Urban Infrastructure
Development (MPSUID) was commissioned by the National Economic and
Development Authority (NEDA) in 2019. Sustainable infrastructure will ensure
access to economic and social services and opportunities through various projects
that incorporate environmentally-friendly structures and systems. This include
transportation systems as a sub-sector, in which it was emphasized that
“Transportation development should promote efficient access to economic and social
services through seamless connectivity between different modes of transportation,
which are convenient, reliable and safe.”
One of the six foundational projects of the city under the MPSUID is an Integrated
Transport System. According to the NEDA Master Plan, “Foundational projects are
generally those that are essential to the enhanced operation of the city and the
achievement of its vision. These have far-reaching impact, implemented over the
long-term and consist of multiple sub-projects and components. It covers transport
and utilities as well as economic zone development which is seen as an important
economic driver in the future. The foundational projects will solidify Butuan City’s role
as Caraga Region’s center of business, commerce, and industry. Butuan City will
support the Caraga Region’s goal to become the FAmE Center of the Philippines.”
In line with the above and based on the public transport issues/problems identified in
the preceding chapter, the city government shall adopt the following Transport
Development Plan to be implemented within the period from 2022 to 2025:
Table 86. Proposed Transport Development Plan
PROBLEMS/ISSUES
GOALS
Outdated Road Network Well-planned
road
Master Plan
network for seamless
mobility of people and
goods
PLANS/PROGRAMS
- Revision
of
Road
Network Master Plan
- Updating
of
Local
Tourism Master Plan
Absence
of Lessen
travel
time
Comprehensive
Urban resulting
to
seamless
Traffic Management Plan
mobility of people and
goods
- Formulation of SMART
Traffic
Management
Plan
- Revision of Transport
and Traffic Code of
Butuan City
Unpaved Roads, and poor Improved
mobility
conditions of road and people and goods
bridges
- Roads and Bridges
Construction Program
- Roads and Bridges
Improvement Program
- Roads and Bridges
Maintenance Program
of
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- Tourism
Road
Infrastructure Program
(TRIP)
Insufficient
infrastructures
facilities
transport Safe, secure, reliable, and
and seamless
mobility
for
people and goods
Environmentally
unstainable,
poorlymaintained, unsafe, not
secure. And limited supply
of public utility vehicles
- Establishment of ITX,
and off-street subterminals at end points
such as in Barangays
Dumalagan, Sto. Nino,
De Oro, Tungao, and
Florida
- City-wide Traffic Lights
and CCTV Installation
Program connected to
the
City
Central
Command Center
- Passenger
Loading
and
Unloading
Facilities Construction
Program
Adequate, safe, reliable,
efficient, and environmentfriendly
public
transportation
for
seamless
mobility
of
people and goods
- Adoption
of
Fleet
Modernization
Program of the DOTr
and LTFRB
- Imposition
of
Mandatory
on-board
Safety and Security,
such
as
GPS,
Dashcam and CCTV,
which should be linked
to the City’s Command
Center
- Adoption of the DOTrLTFRB
Policy
on
Automated
Fare
Collection
System
(AFCS) in all PUVs for
cashless
fare
transactions.
Proliferation of tricycles Safe, Secure, Reliable,
(including Bajaj) in primary and Environment-Friendly
and secondary highways
Public Transportation
- Tricycle Route Plan,
which shall establish
alternate roads for
tricycle
operations
considering
the
hierarchy
of
road
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LOCAL PUBLIC TRANSPORTATION ROUTE PLAN – BUTUAN CITY
functions,
and
consistent with the
Tricycle Modernization
Program
- Strict implementation
of DILG MC No. 2020035 on the tricycle ban
on highways through
regular
enforcement
activities
Poor and unsafe first and Safe and Secure First and
last mile access for Last Mile Access for
commuters
improved people mobility;
Walkable/Bikeable
communities; Improved Air
Quality
and
Reduced
Carbon Footprint
6.3
- Active Transportation
Road
Infrastructure
and
Promotion
Program
Proposed Transport Projects
In line with the preceding section, the following are the identified projects and
activities to be implemented within the period from 2022 to 2025:
Table 87. Proposed Transportation Projects
PLANS/PROGRAMS
Revision of Road Network Master
Plan
Updating of Local Tourism Master
Plan
Formulation of SMART Traffic
Management Plan
Revision of Transport and Traffic
Code of Butuan City
Roads and Bridges Construction
Program
PROJECTS/ACTIVITIES
Revisit and Revise the Road Network Master
Plan
Revisit and Update the Local Tourism Master
Plan
Traffic Impact Analysis
Smart Traffic Management System Project
Revisit and Revise the Transport and Traffic
Code of Butuan City
- Completion of East-West Lateral Roads
- Completion of Butuan City-Magallanes
Road
- Completion of Butuan-Tandag Road
- TRIP Road Projects
- Roads Leading to Conflict-Affected Areas
(CAAs) Construction Project
- Completion of Taguibo Bridge
- Completion of Dulag Bridge
Roads and Bridges Improvement
Program
- Concreting of 56% of unpaved roads
- Concreting of Mahay, Camayahan,
Lemon, Masao, and Pigdaulan Steel
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Bridges
- Concreting of Babag Timber Bridge
Roads and Bridges Maintenance
Program
- Regular Maintenance Project of 44%
Paved Roads
- Regular Maintenance Project of 16
concrete bridges
Tourism
Road
Program (TRIP)
Infrastructure
- Revisit and Update TRIP and align with
CLUP and CDC
Establishment of ITX, and off-street
sub-terminals at end points such as
in Barangays Dumalagan, Sto. Nino,
De Oro, Tungao, and Florida
City-wide Traffic Lights and CCTV
Installation Program connected to
the City Central Command Center
Passenger Loading and Unloading
Facilities Construction Program
Construction of ITX and Off-Street Subterminals
Installation of city-wide traffic light system
and CCTV system
Construction of passenger loading and
unloading facilities with electronic route
information, roofs, benches and lighting (See
Chapter 8 for details)
Adoption of Fleet Modernization Policy issuance
Program of the DOTr and LTFRB
Imposition of Mandatory on-board Policy issuance
Safety and Security, such as GPS,
Dashcam and CCTV, which should
be linked to the City’s Command
Center
Adoption of the DOTr-LTFRB Policy Policy issuance
on Automated Fare Collection
System (AFCS) in all PUVs for
cashless fare transactions.
Tricycle Route Plan, which shall Formulation of Tricycle Route Plan which
establish alternate roads for tricycle should be consistent with the Tricycle
operations considering the hierarchy Modernization Program
of road functions
Strict implementation of DILG MC Regular conduct of enforcement activities by
No. 2020-035 on the tricycle ban on the LTTMO, in coordination with the PNPhighways
through
regular Traffic Enforcement Unit.
enforcement activities
Active
Transportation
Road - Pedestrianization of identified streets for
Infrastructure
and
Promotion
walkable community
Program
- Construction of bike lanes
- Park and Bike Facilities Construction
Project
- Park and Walk Facilities Construction
Project
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LOCAL PUBLIC TRANSPORTATION ROUTE PLAN – BUTUAN CITY
6.4
Public Transport Improvement Objectives
The city’s public transport improvement objectives are classified into Policies and
Plans, Infrastructure Facilities, and Transport Services:
1. Policies and Plans:
a. Enable transformational change through comprehensive policy and
support mechanisms for local public transportation;
b. Integrate local transport planning with land use and the environment to
support more sustainable travel choices. and
2. Infrastructure Facilities
a. Improve accessibility and mobility of people and goods; and
b. Establish appropriate locations for loading/unloading points with easy
transfer facilities through ITX, sub-terminals and stops;
3. Transport Services
a. Ensure demand-based public transport network for seamless mobility
of people and goods;
b. Improve transport economic efficiency for transport providers and
users;
c. Ensure safe, secure, reliable, efficient, comfortable, and environmentfriendly public transportation;
d. Establish adequate supply of PUVs serving the riding public with
reasonable frequency and headway;
e. Ensure reasonable waiting time at loading/unloading points;
f. Ensure minimum accident rate for safety of passengers and other rad
users; and
g. Ensure safe and secure active transport;
6.5
Public Transport Development Strategies
As with the preceding section, the strategies are classified into Policies and Plans,
Infrastructure Facilities, and Transport Services:
1. Policies and Plans:
a. Improve policy and regulatory framework for local public transport;
b. Establish local transportation office to realize state-of-the-art transport
planning, regulation, and monitoring;
c. Ensure demand-based route planning considering road hierarchy
functions; and
d. Promote and sustain active transportation to improve air quality and
reduce carbon footprint.
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LOCAL PUBLIC TRANSPORTATION ROUTE PLAN – BUTUAN CITY
2. Infrastructure facilities
a. Improve road network in the city to accommodate traffic volume and
ensure access and mobility of people and goods;
b. Ensure passenger comfort, convenience, and safety; and
c. Inclusion of Active Transportation Facilities in Road and Bridges
Projects (protected lanes for pedestrians and bicycles), as well as Park
and Walk and Park and Bike Facilities.
3. Transport Services
a. Implement proper fleet management system;
b. Establish appropriate safety measures;
c. Ensure profitability of operations for transport providers with passenger
service efficiency;
d. Establish efficient monitoring system; and
e. Fleet modernization.
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