The Last Mile of Meeting Metro Ridership Targets

6 min readJul 19, 2024

By Luvya Khushalani
India is one of the fastest developers of metro systems in the world, with over 20 systems operational or under construction and another 20 proposed metro/light rail projects. Operational routes span over 900 km, while those under construction cover approximately 600 km. Total metro ridership has already exceeded 10 million, with the Delhi Metro accounting for the majority of this figure. Bus Rapid Transit systems (BRT) are also on the rise in both large and smaller cities.

However, metro systems fall short of meeting their expected ridership.

Despite the $25 billion already invested (with an additional $60 billion expected in the coming years), there remains a significant connectivity gap, most glaringly reflected in cities with metro systems. There is a clear trend of metro systems failing to match their expected ridership numbers as outlined in their Detailed Project Reports. Only the Delhi Metro comes close to its anticipated ridership.

Does first and last mile connectivity have anything to do with it?

While many factors could explain this mismatch — including the deliberate inflation of expected numbers to obtain project approval, as well as issues specific to each system — a commonly cited problem is first and last mile connectivity. The subsequent paragraphs further explore how this connectivity affects ridership.

Financial burden on passengers: The lack of first and last mile connectivity is not only tedious and inconvenient but also a financial burden for passengers. While the metro system itself may be affordable, the costs associated with first and last mile transportation can make it otherwise. Additionally, connectivity costs vary significantly across cities and income brackets, making financial considerations even more critical for individuals choosing a mode of transport, particularly for the young, middle-income groups that metros attract.

Furthermore, in most cases where this connectivity does exist, it often takes the form of informal channels (autos, e-rickshaws, private cabs, etc.), making the system susceptible to volatility in terms of availability and pricing, as well as safety. This unreliability can negatively affect ridership.

Time burden on passengers: Lack of accessibility drives many people away from metros, as the time lost and/or inconvenience caused in making connections may tip the scale in favour of private transport, usually in the form of motorised vehicles. This effectively reduces the ‘catchment zone’ of each metro system, making it increasingly less viable to access. While policy aims to increase this catchment zone, most efforts have been ineffective, driven by what seems to be a policy of ‘hit and trial.’

Convenience burden: Additionally, there is a documented phenomenon where personal vehicle users become accustomed to the perceived convenience of driving. This perception can lead to reluctance to switch to metro systems, even when it might be optimal to do so. This shortcoming has significant implications, potentially turning metro systems into financial black holes for governments. A successful metro system requires not only robust infrastructure but also a certain level of ease of access, both geographical and financial. Moreover, this could limit the variety of job opportunities available to individuals (particularly women) as parts of the city become less accessible.

Even in well-developed metro systems like that in Delhi, GIS-based studies have shown that beyond a few very dense areas, most regions do not fare particularly well in terms of accessibility, with the outer parts of Delhi being the worst in this regard.

In smaller cities, this problem could be even more severe. For instance, in Nagpur, the two metro lines bypass many important commercial and residential areas, especially in the older parts of the city, making many stations out of reasonable reach for potential users.

Unequal distribution of burdens

In light of various public transit schemes launched for women, as well as the studies that have and will follow, it is useful to briefly explore how the lack of first and last mile connectivity disproportionately affects women.

First, women may be paying more to access less. A WRI Report that surveyed users from Nagpur, Delhi, and Bangalore revealed that women, on average, were taking shorter trips yet spending more. While a broader survey may be required to better establish this finding, it is nonetheless intriguing. This phenomenon is likely due to safety concerns, but more data is needed to fully understand this behaviour.

Second, the ease and safety with which women can travel significantly impact their labour participation. Improved travel options would make many parts of the city reasonably accessible, granting women more opportunities. Enhanced safety would enable women to travel alone with greater confidence.

Lastly, there is the aspect of time poverty. Given studies linking the gender wage gap to women’s household duties, it is possible that these responsibilities restrict how long a woman can spend travelling. Improved connectivity could play a crucial role in alleviating this issue, thereby reducing travel times.

How might we understand these burdens better?

While some systems and stations have implemented last mile connectivity solutions, there is a significant lack of understanding regarding what is truly required. In Delhi, when feeder bus systems were established, many suffered from low ridership numbers, even at some of the most crowded stations. There is not only a trade-off between frequency and capacity to consider but also practical aspects such as cost, time, and safety.

Such systems cannot be implemented based on rudimentary observations, as is often the case. Quantitative as well as qualitative data should be collected and properly utilised to prevent the wastage of time and resources often caused by an experimental approach to connectivity. A well-rounded set of targeted choices is essential for increasing station access and, consequently, ridership numbers. Monitoring and responsiveness will help address changing travel patterns.

Promising First and Last Mile Connectivity Programs:

The Metro Rail Policy of 2017 aimed to address this issue by employing a mix of bus feeder services, electric vehicles (including rickshaws and scooters), rental cycles, and private cab companies. While Uber and Ola are readily available options, more affordable and environmentally friendly alternatives like YULU have emerged. Many metro corporations, most notably DMRC, operate several bus feeder routes. The Kochi Metro has launched a shared auto service with both male and female drivers to ease travel. DMRC has initiated similar programs at select stations.

While some of these initiatives have been quite successful, others have experienced mixed results, suffering from infrequent services, capacity issues, and a lack of proper information dissemination.

Conclusion:

It is evident that much remains to be achieved to improve public transport and user experience in India. First and last mile connectivity is a significant issue that makes it difficult for smaller cities to justify the need for a metro system and holds back otherwise well-developed networks from reaching their full potential. Financial concerns, travel times, frequency, capacity, and women’s safety are all important aspects to consider, best addressed through access to ground-level behaviour data. The absence of such data often leads to misguided project implementation.

Diversifying options is also crucial to cater to individuals across different income brackets and those with varying priorities. The particular impact on women must also be taken into account.

Promising programs have emerged in recent years. While the use of environmentally friendly modes such as bicycles is welcome, the lack of bicycle infrastructure also needs to be addressed, an area where we currently lag behind. Shared modes of transit should also include female drivers, particularly for e-rickshaws, while keeping in mind the trade-offs between frequency and capacity. Perhaps most importantly, walking infrastructure must be improved, prioritising safety and accessibility, which is currently lacking around most metro stations.

ABOUT FIRST PRINCIPLES FIRST: First Principles First is a series by OMI Foundation that explores the underlying principles that shape our understanding of mobility and its impact on our lives. This is OMI Foundation’s endeavour to navigate the complexities of mobility through the clarity of first principles.

EDITORS: Jagriti Arora, Lead — Research, OMI Foundation

DISCLAIMER: OMI Foundation nor any party associated with this article will be liable for any loss or damage incurred by the use of this study. © OMI Foundation.