That is the gist of it. The currently existing policy gives details on the groups and tries to list the people favourably affected by the policy, but it is impossible to list all those people. In an effort to group them together using a single word, the term “user” has been used, and that includes everyone, including persons with disabilities and the persons you are referring to, whether it may be a pregnant woman or any other user, even the transporter’s employees.
It's a generic term that essentially includes everyone who uses the transportation system. That was the intent of that provision.