Civil Engineering Department

Transportation Division

Evaluating Pedestrian Safety

in Metro Manila
Balcos, Marla Felicity M.1, Quiaem, Megan Angela S.2

1
Student, De La Salle University - Manila, marla_balcos@dlsu.edu.ph
2
Student, De La Salle University - Manila, megan_quiaem@dlsu.edu.ph

Abstract— Pedestrian Safety is an important component of urban planning. Walking is the most popular mode of
transport in Metro Manila and with the continual development of the built environment, an increase in vehicular
traffic call for definitive pedestrian facilities within Metro Manila. A proper separation between motorized vehicles
with vulnerable road users, proper traffic signals, and pre-defined crossing areas are only a few possible solutions in
decreasing the abundant pedestrian traffic accidents that occur within the region. Multiple laws and governances
protect the pedestrians but without discipline and law enforcement, no good will be done. In order to establish proper
measures that will aid in the improvement of pedestrian facilities, the requirements provided by the World Health
Organization were defined and analyzed and investigation of Tokyo City’s pedestrian facilities was performed to
determine the best course of action for Metro Manila. While Metro Manila pedestrian facilities and safety requires
continuous improvement, it is not impossible for the region to be pedestrian safe, provided the proper investment and
planning.

I. INTRODUCTION the roads and during low lighting conditions, such as at

nighttime or early morning.
The constant evolution of urban transport systems and
the growth of urban environments require effective means
of transportation for the transfer of both goods and people.
However, improving public transport systems prove
insufficient in the development of the urban environment.
In the Philippines, and especially in Metro Manila, short
distance travel between homes and major transport hubs is
handled by “cycle rickshaws”, more commonly known as
“pedicabs”, or motorized tricycles. Walking is considered
another alternative and is the most common mode of short
distance travel. While pedicabs and tricycles occupy the
road, alongside autos, jeepneys, and buses, and add to the
volume of traffic within an urban environment, walking
does not. It is an effective method of decreasing the volume Figure 1. The proportion of road fatalities by road user
of traffic on the roads and transporting people without the (WHO, n.d.)
interference of traffic congestion. The desire for commuters
to opt for walking instead of taking more convenient Providing a safe walking environment includes a proper
alternatives are dependent on multiple factors, some separation between autos and pedestrians such as
including the characteristics of the walking environment, barricades, the usage of overpasses and tunnels as a means
the distance of travel, the level of service of the available to move from one side of the road to another, and ensuring
walkways, and the accessibility of aforementioned a sufficient effective walkway width. The study will
walkways. include a statement of the factors affecting walking as a
mode of transport, the methods of ensuring pedestrian
As the vehicular activity increases, the need for a more safety, and a comparison between the state of pedestrian
definitive pedestrian space follows. The movement of walkways, tunnels, and overpasses in Metro Manila and
people while they walk from one location to another should Tokyo. Tokyo City was chosen as a point of comparison as,
be monitored just as vividly as the movement of vehicular like Metro Manila, it is a highly urbanized area with similar
traffic. In a report released by the World Health zoning. Methods employed by the governments of this city
Organization (WHO) (n.d.), it was mentioned that will be analyzed and its feasibility in the Philippine setting.
approximately 270,000 pedestrian deaths are recorded each
year. The figure below shows the distribution of road II. CHAPTER 1: DEFINING PEDESTRIAN SAFETY
fatalities by road users based on a 2010 statistic done by the
WHO. In Southeast Asia, 12% of pedestrians with respect A. PEDESTRIANS AND WALKING
to other road users are killed due to road traffic accidents,
however, overall, 22% of road fatalities are pedestrian A pedestrian is a road user that travels by walking and
deaths. It was also stated by WHO that the majority of the is an important element in urban networks. It affects
pedestrian collisions occur as the pedestrians are crossing network traffic operations especially the performance of
sidewalks and crosswalks as it interacts with automobiles,
transit, and other traffic modes. Walking is a mode of Another factor that influences walking is in relation to
transport common to societies around the world. Every trip facilities and their characteristics which are the type of
virtually includes walking usually at its beginning or end. facility, traffic safety, steep grades and difficult crossings.
For some trips, the only mode utilized is walking. It is also where the largest body of research on pedestrians
is focused on. Table 2 summarizes conclusions from
Walking has health, environmental, and economic research studies that emphasize key relationships between
benefits. It increases physical activity. This includes factors related to facility and walking. The most important
reduced cardiovascular and obesity-related diseases. It consideration is the shortest distance/travel time in the
reduces transportation costs, saves on parking, reduces network, then pedestrian safety related to vehicle traffic.
medical bills, saves time, and reduces the vehicle-hours This concern is also related to having sidewalks and safe
traveled, thus increasing productivity (McLaren, 2016). For crossings where vehicle volumes and speeds are high.
this reason, countries have started implementing policies Pedestrians also do not favor traveling close to speeding
that encourage walking and view it as an important vehicle travel when walking along busy roads. While
transport mode. Pedestrians are unfortunately vulnerable pedestrians find safety and security in sidewalks, it is only
and their safety is a critical issue for any road network. desired in busy areas, but are not necessarily deemed
Increased walking can also lead to a greater risk in road needed in residential areas. In fact, as seen in Table 2, it
traffic accidents and injuries. As the number of motor was also found that less than half of walking actually
vehicles and their frequency in use increase, together with occurs on sidewalks.
the exclusion of pedestrian needs in land-use planning and
roadway design, pedestrians’ vulnerability and Table 2. Facility-related factors affecting walking
susceptibility to injury also increase. This is especially true (Kuzmyak, et. al, 2014)
for settings where there are inadequately-enforced traffic
laws.

Kuzmyak, Walters, Kockelman, and Bradley (2014)

under the Transportation Research Board (TRB) has
identified factors affecting walking (and biking) behavior
covering the choice of the mode, the decision whether to
travel, the origin and destination of the trip and which
routes to take. One of these factors is land use and the built
environment. Studies have established attributes of the built
environment that have an impact on travel behavior. These
attributes, come to be known as the 5 D’s are the following:
density of population and employment, diversity or variety Other factors include natural environment (topography,
of land uses and their proportional balance, design or the climate/weather), sociodemographic factors, perceptions
orientation between development and people (pedestrian and attitudes and much more. Walking is much more
access, existence of facilities, frequency of safe crossings, affected by these factors than other modes of transport due
etc.), distance to transit and destinations (access to regional to its involvement in physical effort and exposure. For
opportunities). example, a person traveling by auto would give little
thought to whether they are traveling uphill or downhill, or
at uncomfortably hot or cold temperatures. These factors,
Ewing and Cervero (2010) assessed the impacts of these
attributes and attempted to synthesize average elasticities however, do not have equal weight on the travel decision-
making process and are more relevant than others
reflecting the levels of their impact derived from
depending on the kind of trip the user is making. For
coefficients estimated through regression analysis. They
example, a work or school trip would be affected more by
also represent the percentage change in the number of walk
distance and convenience. The relevance of these factors
trips with a 1% change in the presented variables in Table
also varies on the type of individual making the trip. For
1. For example, a 1% increase in residential density would
cause a 0.07 increase in walking trips. As seen on the table, example, the topography of an area would affect an older
individual rather than a young individual who is better-
the factors that have the biggest effects on walking trips are
equipped to traverse inclined paths.
intersection density (0.39), distance to the nearest store
(0.25) and jobs/housing balance (0.19). B. LAWS AND ORDINANCES PROTECTING PEDESTRIANS
Table 1. Weighted average elasticities of walking in In the Philippines, a senate bill known as the Pedestrian
relation to built-environment factors Safety Act of 2018 introduced by Sen. Leila de Lima
enumerates the rights and duties of pedestrians and
specifies penalties of its violation, on both sides: the
pedestrian and the motorist. Road accidents are not only
caused by motorists who refuse to follow the Traffic Cose,
but also pedestrians who are at fault for placing themselves
in dangerous situations. The bill also proposes that all
obstructions along sidewalks and public roads be declared
as a nuisance, where local governments may abate these
nuisances to clear out roads and ensure safe passage for
 Civil Engineering Department
Transportation Division
pedestrians and motorists. Finally, the government is Alcohol is also an important factor that affects the risk
appointed to provide sidewalks where there are none, clear of road accidents as well as the severity of the outcome of
obstructions and install signages for construction activities these accidents. Consuming alcohol results in an
and disseminate the provisions cited in the bill. impairment, increasing the likelihood of a crash happening
as it allows for poor judgment, increases reaction time,
In Sāo Paulo, Brazil the Companhia de Engenharia de decreases awareness to surroundings and the person’s
Tráfego (CET) in 2010 launched a program for pedestrian visual acuity. It is not limited to motorists, however, and is
safety with the objective of reducing the number of also applicable to pedestrians. It is a common problem
pedestrians killed by 50% by the end of 2012. The program found in several countries such as Australia where it is
included media campaigns and raising awareness, estimated that one-third of pedestrian fatalities have a blood
engineering measures, and traffic law enforcement. Various alcohol concentration (BAC) above the permissible limit of
agencies were given the responsibility of different aspects 0.08 g/dl, and the US where 35% of pedestrian fatalities
to coordinate the implementation of the program, whereas involved alcohol-impaired motorists also with BACs above
the City Transportation Secretariat oversaw the overall the permissible limit.
implementation of the program; CET was responsible for
engineering, education, and enforcement; the municipal A pedestrian risk is also increased due to the exclusion
government, through the Department of Communication of pedestrian facilities in roadway design and land-use
for media campaigns; and all other agencies involved. planning. These facilities, as mentioned before, include
sidewalks and adequate pedestrian access at intersections.
Sweden’s Vision Zero road safety policy focuses on the Also, a factor that influences risk in pedestrian safety is
prevention of serious injuries and fatalities using the Safe their inadequate visibility, and is due to inadequate/lack of
System Approach having the ultimate goal of reducing roadway lighting, pedestrians not equipped with lights and
these fatalities and serious injuries to zero by 2020. It pedestrians sharing the road with fast-moving vehicles.
prioritizes safety over speed, proposing a speed limit of 30 Other risk factors also include unsafe driving practices,
kph and constructed 12,600 safer crossings since its driver or pedestrian distraction, driver fatigue, the age of
implementation in 1997. Along with the implementation the motorist/pedestrian (i.e. increases PRT), among others.
and enforcement of strict policies, Sweden has significantly
reduced the number of pedestrian fatalities to half its WHO also lists the safety interventions that would
number over the past five years. uphold pedestrian safety. These interventions include
reducing the exposure of pedestrians to vehicular traffic.
C. SAFETY IN PEDESTRIAN FACILITIES Most of the ways to implement this involve separating
pedestrians from vehicular traffic or reducing traffic
There are four key factors identified by WHO that volume. Constructing sidewalks or footpaths is one of these
influence the risk of pedestrian traffic injury: speed, ways as it separates pedestrians from motorized vehicles
alcohol, lack of pedestrian facilities, inadequate visibility of and bicycles. Studies have proven that sidewalks improve
pedestrians and inadequate enforcement of traffic laws. The pedestrian safety and increase walking trips.
speed a car is traveling affects crash risk and consequences.
The effect on crash risk is seen in the relationship between To maximize the benefits of sidewalks/footpaths, WHO
speed and stopping distance. Essentially, a car traveling at a states that they should be:
higher speed has less time to stop and avoid a crash or
accident. Figure 2 shows the average situation in which a 1. A part of new/renovated roadway
driver has a 1.5-second perception-reaction time (PRT). A 2. Provided in areas that currently do not have any
car traveling at 50 kph, on average, will require a stopping 3. Provided on both sides of the road
distance of 36 m, while a car traveling at 40 kph would 4. Comprised of a hard, level surface
require 27 meters. Speed management is necessary in 5. Designed in accordance with local guidelines
addressing pedestrian safety. 6. Continuous and accessible to pedestrians
7. Of adequate width and be free from obstructions

Figure 3. A sidewalk in the Philippines

Figure 2. Speed and stopping distance for emergency
braking Crossings, for a brief period, separate pedestrians from
vehicular traffic while they traverse a street. The purpose of
marked crossings is to identify the optimal/preferred
location for pedestrians to cross. They help indicate
pedestrian right of way and where motorists are to yield to
pedestrians at these points. Marked crossings are installed
usually at signalized intersections and other areas where
there is a high volume of pedestrians crossing (e.g. school
zones). Important points to consider when installing
crossings are:

1. Marked crossings are unlikely to increase pedestrian

safety without other enhancements (e.g. traffic
signals)
2. Marked crossings are not appropriate for areas where
there is high traffic speed.
3. Marked crossings on roads where there are more Figure 5. The Kamuning Footbridge in Quezon City,
than two lanes may actually increase pedestrian- Philippines
vehicle accidents.
4. Locations of marked crossings should be of It was stated by the WHO (n.d.) that a method of
convenience for pedestrians and accessible for decreasing pedestrian accidents is proper road design and is
persons with disabilities. Pedestrian movements and elaborated below:
desire lines, which are the most direct and shortest 1. Establishing a formal pedestrian walkway,
path between two locations can be used to analyze including overpasses, underpasses, raised
and identify the optimum location for crossings. crossings, refuge islands, and raised medians
5. Marked crossings should be installed at locations 2. Forcing a lower vehicle speed through locations
where there is sufficient lighting at night. where pedestrian activity is abundant through
speed bumps and rumble strips
3. Improving lighting conditions at pedestrian
walkways, most especially at the crossings
4. Removing obstacles that block the line of sight of
pedestrians and drivers
5. Creating pedestrian-only zones within the city
6. Improving the design of public transportation
routes
7. Utilizing infrastructures to ensure the safety of
school children to and from school.

III. CHAPTER 2: STATE OF PEDESTRIAN SAFETY IN

METRO MANILA

Metro Manila is prone to multiple traffic accidents.

2017 statistics released by the Metropolitan Manila
Figure 4. A marked crossing in Metro Manila, Development Authority (MMDA) show that nearly 19,400
Philippines people were injured and almost 450 people died due to road
crashes alone in Metro Manila alone (Rey, 2018). While
Overpasses and underpasses are bridges and tunnels road crashes are entirely separate from pedestrian
separating pedestrians from vehicular traffic and allows for accidents, the occurrence of road crash also leads to injuries
uninterrupted flow. These are installed primarily in areas and fatalities from the pedestrians within the vicinity.
with high pedestrian volumes. Issues arise, however, with Despite this, however, a transportation study conducted by
regards to its implementation: the Japan International Cooperation Agency, or JICA
1. The effectiveness of their usage depends mostly (2015) on the residents of Metro Manila states that walking
on the frequency of use, which then depends on comprises almost 31%, or nearly 11,000 of 35,500, of the
convenience, security and walking distances total number of trips within the region, as seen in Table 3.
compared with other crossing locations. It can also be observed that walking is the second most
2. Overpasses are appropriate when topography popular mode of transport, second only to the total of
allows for the installation of a structure without public transportation. Table 4, on the other hand, shows the
ramps. Overpasses with multiple stairs, for purpose of the trips including walking as a mode of
example, are generally not user-friendly. (Figure transport. The most common purpose for travel for the
5). residents of Metro Manila is to
3. Underpasses can be damaged by flooding, and
need more frequent maintenance
4. Underpasses are dark, secluded places and may be
targets of crimes. In turn, they should be well-lit
and be provided with security.
 Civil Engineering Department
Transportation Division
Table 3. Trip Composition by Mode (JICA, 2015)

Figure 3. Example of a Metro Manila Overpass by the

MMDA

As detailed in the Pedestrian Safety Act of 2018, the

rights and duties of pedestrians crossing in general include
the walking on sidewalks where provided, and not on the
Table 4. Trip Purposes including walk trips of residents in
portion of a public road for vehicular traffic; where
Metro Manila (JICA, 2015)
sidewalks are not provided, a pedestrian walking along a
public road shall walk only on the shoulder on the left side
of the roadway in relation to the pedestrian’s direction of
travel, facing traffic which may approach from the opposite
direction; a pedestrian shall not suddenly leave a place of
safety (i.e. a curb) to get in the way of a vehicle so close
that it is impossible for the motorist to yield; a pedestrian
may not cross an intersection diagonally except when
authorized, and other similar provisions.

IV. CHAPTER 3: PROPOSED SOLUTIONS

According to Chris Weller (2015) on his report on the

state of traffic accidents in Tokyo City, it was mentioned
that Tokyo had nearly eliminated the traffic accidents that
occur within the city. They had decreased the rate of
fatalities to only 1.3 per 100,000 individuals per year, an
A cause for the prevalence of pedestrian accidents is a impressive account considering that Tokyo City is
clear lack of pedestrian facilities within Metro Manila or considered as one of the largest cities in the world with a
the lack of utility of the existing pedestrian facilities. population density of nearly 6,200 persons per square
Sidewalks are blocked by illegal street vendors, a lack of kilometer (Tokyo Metropolitan Government, 2015). In a
law enforcement encourages pedestrian crossing at any study by the World Resources Institute, it was observed
point of the road, a lack of proper signalized traffic or that fewer traffic fatalities occur when the city has proper
designated time for pedestrian crossing are only some of accommodations for the commuter, including a complex
the reasons as to why pedestrian accidents. Additionally, but intuitive public transportation system, bicycle lanes,
the safety of pedestrians also includes security against and, more importantly, a defined space for pedestrians and
criminals as it does safety against motorized vehicles. vehicular traffic.

The overpasses of Metro Manila are the most common Due to the increasing population of older individuals,
method of crossing major roads within the regions. It is specific measures needed to be done by the Japanese
most commonly seen in populated locations where Government to ensure the safety of commuters, drivers, and
pedestrian activity is the highest. To avoid disrupting pedestrians alike. To accommodate the growing need, the
vehicular traffic, overpasses allow pedestrians to cross the Transport Safety Promotion Plan of Tokyo Metropolitan
road above the motorized vehicles. They are interconnected Region was established wherein the development of
and have multiple entrances and exits for ease of barrier-free Pedestrian facilities by widening arterial
transference between one sidewalk to another sidewalk. walkways were widened and the increase of sidewalks that
Overpasses, however, are not a friendly alternative for the were friendly to both the elderly and the people with
elderly or the persons with disabilities (PWD) as the disability. Alongside this improvement were the
majority of the overpasses within the region use stairs for establishment of better lighting in pedestrian areas and
access, which is extraneous for the elderly and impossible better traffic signals (Asian Development Bank, 2006).
to traverse for the PWD’s. Figure 3 shows an example of a
Metro Manila overpass and the number of pedestrians who The establishment of clear walking areas and pedestrian
use it regularly. facilities, proper enforcement of crossing areas, and overall
discipline of the pedestrians aid Tokyo’s traffic fatality-free
city. In the report by Mariano (2018), it was stated that
improving pedestrian facilities will cost less and provide a ACKNOWLEDGMENT
greater improvement to the city than continuously changing
the roads. Ensuring pedestrian safety can begin by We would like to express our gratitude to our professor,
establishing formal sidewalks lined with plants and bollards Engr. Paolo Lucero who, through the course Transportation
to separate vehicles and the walkers instead of fences for Engineering, imparted the knowledge that assisted in the
aesthetic, comfort, and security purposes. The installment writing of this research paper. We would also like to thank
of proper lighting around pedestrian facilities, such as De La Salle University for sponsoring access to studies and
walkways, overpasses, and at crossings will provide a sense journal articles that also aided the writing of this paper.
of security for the pedestrians against thieves and provide
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