it can be urban vs rural sometimes. On one day late 2011 I was stopped at a roadblock just north of Compostela, Cebu. There'd been a gruesome multiple murder in the area a week or so before and just like in the west the cops were putting up a bit of street prescence to reassure the public, part of it included motorists being stopped to show license and registration, I was one of them. I wasn't wearing a helmet but they said nothing just checked my papers and let me go. later on that same day I was 12km south in Consolacion going north and noticed a block on the other carriageway, this one was obviously a helmet block, the only people being stopped and taken aside were those not wearing helmets. 12km may not seem that far but it's 12km closer to Cebu city, and Consolacion is where you first start hitting the really urban features like shopping malls, meter taxis start appearing all of a sudden, and multiple fast food places. In the more rural settings, they usually don't care so much, though even in the province it's not toally unknown to be stopped for no helmet. In Cebu city itself, if you have been in the province for a while, it suddenly seems as if almost everybody is wearing helmets, just like in Manila and NCR, almost everybody wears helmets.