India has made impressive strides in expanding its Metro systems, with the network growing from just two cities to 17, and seven more planned by 2030. This reflects a serious commitment to modernising urban mobility, reducing congestion and curbing emissions. However, most Metro systems are struggling to meet their ridership targets. So, what’s missing?

From poor integration with other transportation options to high ticket prices and slow infrastructure rollout, Metros in India have faced several roadblocks. In cities like Mumbai, even with a growing network, ridership remains below expectations, as many commuters continue to rely on local trains and private transport.

Addressing issues such as first- and last- mile connectivity, improving service quality, and creating affordable pricing models could be key to boosting Metro use and making these systems truly effective in reshaping urban mobility.

The Promises Of Metro

India's Metros were meant to serve as an antidote to crippling traffic jams that have become synonymous with urban living. Mumbai, a city of 20 million people, is notorious for its overcrowded roads, inefficient local trains and deteriorating air quality.

Mumbai Metro began operations in 2014 with the promise of transforming the city’s transportation landscape. It was expected to be a much-needed relief — offering fast, reliable and pollution-free transport. However, despite several new lines being added since then, ridership numbers remain disappointing.

Its daily ridership is estimated at just 20,000 — far below Mumbai Metro Rail Corporation's (MMRC’s) target of 1.3 million. Most of these are joyriders, not regular commuters, as the full 33.5 km corridor remains incomplete. This gap between projected and actual ridership is not an isolated issue. Subsequent Metro lines in Mumbai are seeing similar underperformance in ridership.

There are several reasons contributing to this disparity.

1. Lack Of Integration With Other Transport Modes

Mumbai’s Metro falls short in integrating with other transport modes, unlike Delhi, where Metro services are informally linked with buses, auto-rickshaws and local transport for smoother transitions.

A World Resources Institute (WRI) study shows shared auto-rickshaws are a popular last-mile option in Nagpur and Delhi, thanks to frequent service, narrow road access, flexible pick-up/drop-off points and affordable fares — appealing even to higher-income commuters.

The study also found 89 per cent prefer shared auto-rickshaws over buses, despite free rides for women on Delhi’s government buses. Delhi Metro has surpassed 7 million daily riders, well beyond its 2023 projection, showcasing its impact in easing congestion. In high-traffic corridors, it handles 50,000+ passengers during peak hours. Alternatively, it would require 715 buses, making road traffic unmanageable.

Further, the November 18, 2024 launch of an integrated QR-ticketing system by DMRC and NCRTC enhances convenience, allowing seamless travel across RRTS and Delhi Metro via the 'DMRC Sarthi' and 'RRTS Connect' apps. In high-traffic corridors, Delhi Metro handles 50,000+ passengers during peak hours — which would require 715 buses per hour, leaving Delhi’s roads gridlocked.

Mumbai's Metro lacks this level of connectivity and often doesn't reach key destinations, especially in the sprawling suburbs. This forces passengers to rely on costly and inefficient first- and last- mile connectivity options, making the Metro a less attractive option.

With the Metro currently holding just 5 per cent of modal share, poor integration and accessibility are key issues. The Metro 3 line, after a full day of operation, carried only 20,500 commuters — barely more than 25 BEST buses could manage in a day. Despite multiple trips and up to eight cars per train, ridership remains lacklustre.

A route rationalisation study for buses as feeders is crucial to boosting ridership. Integrating the Metro with buses, auto-rickshaws and local trains could create a smoother, cost-effective and more attractive transport network, ultimately boosting Metro ridership and reducing road congestion.

2. High Cost, Financial Sustainability

Though Metro rides are generally cheaper than private transport, they can still be expensive when compared to other forms of public transit, such as local trains or buses. Indian cities are densely populated, so long trips aren’t common.

Thus, to increase ridership of the Metro in dense corridors, linkages to other modes of transport and improving walkability around the Metro corridors becomes paramount. Though notoriously overcrowded, Mumbai’s local trains remain the lifeblood of the city’s commuters, offering an affordable alternative.

Commuters on suburban railways also travel the longest average distance, covering 23.8 km per trip. Given the higher costs of Metro travel and its often-limited reach, many Mumbaikars continue to opt for local trains, which are more accessible and offer better value for money.

The Metro may never be able to match the trip lengths of the local trains as the trains cover peripheral areas of Mumbai, but with some interventions, it can enhance travel in dense corridors.

The trends in Figure 2 serve as a valuable benchmark for cities looking to expand their networks, and for new cities launching Metro projects. On average, the cost of constructing a Metro line in India ranges between Rs 181 crore and Rs 389 crore per km, depending on the city and terrain.

In contrast, bus rapid transit (BRT) systems cost roughly Rs 44 crore per km, as demonstrated by the 22 km-long Hubballi-Dharwad BRT corridor, which has been declared the 'Best Mass Transit Project' by the Government of India. 

Thus, in many scenarios, buses can offer flexible, low-cost and quicker-to-implement alternatives that serve a broader population. The key challenge for Metros will be to integrate with existing networks and ensure high ridership to justify the investment. It will be interesting to assess the medium- to long-term cost-benefits of Mumbai Metro, once it expands its operational length to 59 km.

3. Delayed Infrastructure Development

Another major issue affecting Metro ridership in Mumbai is the slow pace of infrastructure development. New lines take years to develop due to land acquisition issues, bureaucratic red tape and construction delays. The fragmented and incomplete nature of the network means that it doesn't yet offer the comprehensive coverage needed to lure people away from their cars or bikes.

Phase 1 of 33.5 kms was approved in August 2014. But, plagued by controversies over the Aarey car shed and challenges in congested areas, construction only began in October 2016. The Covid-19 pandemic further delayed progress. Meanwhile, costs skyrocketed from Rs 23,136 crore to Rs 37,276 crore.

Phase 2 also faces hurdles with tight spaces and heritage sites in Kalbadevi and Girgaon complicating station construction.

4. Electrifying Transport, Metro Expansion

The Mumbai Climate Action Plan (MCAP) is more of a wishlist than a statutory blueprint, and it remains overly conservative. For example, dedicated bus lanes are promised by 2040 "wherever feasible" — even though they could be implemented immediately on key highways.

Moreover, Mumbai’s overall transport system is being designed to serve different classes, with toll roads for luxury cars of the elite, and overburdened public transport for the working class. The MCAP fails to challenge this status quo, neglecting urgent climate action measures like halting the Coastal Road project, integrating Metro or rail in the Trans Harbour Link, or preventing further car-centric projects.

Mumbai’s public bus service, BEST, highlights that the core issue isn't revenue deficits but a policy shift that promotes contractualisation and shrinking services to benefit the Metro and real estate development. BMC defends this as cost-cutting, but contractors cut corners on maintenance and wages, leading to accidents and fires.

BEST's fleet has plummeted from 4,000 buses to just 1,061, with no new purchases, forcing workforce downsizing. As Figure 3 demonstrates, the modal share of buses has decreased by 75.68 per cent, while the share of two- and four- wheelers has increased by 48.15 per cent over a 20-year period. This trend will only worsen as people are forced to shift to private vehicle ownership.

Further, what urban planners may have failed to identify is the deeply ingrained travel habits of Mumbaikars. Though inconvenient and overcrowded, local trains and buses are considered symbols of resilience and efficiency in Mumbai's daily grind. Asking people to switch to the Metro requires changing decades-old commuting patterns, which cannot happen overnight. 

Additionally, the Metro and other public transport modes carries a stigma for the city's wealthy, who believe these are mainly for the working class. So they prefer private cars or cabs for comfort and convenience.

Global Best Practices

Cities like London, Bogota and various European capitals showcase efficient bus systems that Mumbai can learn from. Bogota’s Bus Rapid Transit System (BRTS) stands out, with the city's former mayor famously stating that affordable public transport is a right, while driving and parking are privileges.

This mindset challenges the entitlement many feel toward private cars. Public transport should not be planned in isolation; it must coexist with private transport, as seen in Singapore, where car ownership is heavily taxed, with proceeds funding public transit upgrades. Mumbai could adopt similar policies, like parking fees or congestion pricing, to support BEST services.

Instead, its public transport share has dropped from 88 per cent in 1991 to 65 per cent in 2020. The shift to cars is driven by policy, not aspiration. Investing in quality public transport can make travel affordable, sustainable and reduce emissions.

A bus carries 30 times more passengers than a car daily in a typical Indian city. Yet, cars occupy most street space, serving less than a quarter of all trips and sitting idle 95 per cent of the time. Supporting private cars — through flyovers, parking lots, and road expansion — drains public funds, offering little return on investment.

A Seamless Future

Despite these challenges, the Mumbai Metro is not beyond hope. The key to improving ridership lies in addressing the broader issues of urban mobility. The Metro must be part of an ecosystem, not just a standalone project. It’s time for a unified, multi-modal approach that makes commuting smarter, quicker, and more sustainable for all.

(The writer is a public policy and urban transportation enthusiast and specialist. Views are personal)