FreedomTicket
Phase II: Now, More than Ever!
October 2021
Permanent Citizens Advisory Committee to the MTA (PCAC)
Acknowledgments
Report Author:
Bradley Brashears, AICP - PCAC Planning Manager
Contributors:
Kara Gurl, Research & Communications Associate
Shaul Picker, Research Intern
Gav Mazurek, Research Intern
Editor:
Lisa Daglian, PCAC Executive Director
Special thanks to
Andrew Albert, NYCTRC Chair
Gerard Bringmann, PCAC/LIRRCC Chair
Randolph Glucksman, MNRCC Chair
Ellyn Shannon, PCAC Associate Director Emeritus
Metropolitan Transportation Authority (MTA) staff; Long Island Rail Road (LIRR) staff;
Metro-North Railroad (MNR) staff; New York City Transit (NYCT) staff
PERMANENT CITIZENS
ADVISORY COMMITTEE TO THE MTA
Executive Summary..................................................................................................................................................i
Introduction..............................................................................................................................................................1
Atlantic Ticket Field Study (Phase I)........................................................................................................................3
Freedom Ticket Expansion (Phase I).......................................................................................................................5
LIRR City Ridership Analysis: 2019, 2020, and Beyond.........................................................................................8
Suburban Discounts: O-Peak & Reverse Peak Pilot Programs (Phase II)...........................................................16
LIRR Suburban Ridership Analysis: 2020 vs. 2019..............................................................................................18
MNR Suburban Ridership Analysis.......................................................................................................................25
Outer Borough Transportation Account (OBTA)..................................................................................................28
Conclusion..............................................................................................................................................................29
Appendix A: LIRR City Ridership Analysis...........................................................................................................30
Appendix B: Pre-Pandemic Metro-North City Ridership Analysis.......................................................................30
Appendix C: LIRR Suburban Pre-Pandemic & 2020 Ridership Analysis;
MNR Suburban Pre-Pandemic Ridership Analysis..........................................................................37
Appendix D: Fare Restructuring Lessons Learned................................................................................................38
Appendix E: Outer Borough and Suburban Bus Connections...............................................................................39
Appendix F: Platform Lengths................................................................................................................................41
References...............................................................................................................................................................42
Contents
i
Executive Summary
After two years of steadily increasing ridership on
the Long Island Rail Road (LIRR) and Metro-North
Railroad (MNR), the COVID-19 pandemic essentially
brought the region – and its regular stream of daily
commutes – to a halt. Both railroads saw initial
decreases in ridership of more than 90 percent. The
good news is that the ensuing months have seen more
people returning to the rails: as of July 2021, the
year-to-date ridership levels have rebounded to 41
percent for LIRR and 39 percent for MNR, compared
to pre-pandemic levels for July 2019.
1
These gures
show signs of surpassing McKinsey & Company
estimates from the Metropolitan Transportation
Authority (MTA)-funded analysis that anticipated a
return of 80-to-90 percent of pre-pandemic ridership
by 2024.
2
At the same time, however, it is anticipated
that a signicant number of commuters will continue
to work from home, and that travel patterns and
times have changed for years to come, if not forever.
The decline in ridership and ensuing farebox losses,
coupled with added cleaning and disinfecting
expenses, have wreaked havoc on the MTA’s budget
and wrought what former chairman Pat Foye called,
“a once in-100-years scal tsunami.”
3
The challenge
over the coming years is multifold, including bringing
riders back into the system and addressing the
MTA’s huge budget hole, while acknowledging that
ridership may not fully return to pre-pandemic levels
or patterns.
Thanks to Senator Chuck Schumer, his colleagues
in government, the work of MTA agency heads, and
the advocacy community, the MTA benetted from
federal stimulus funding to the tune of $14 billion,
which saved riders from the most severe service cuts
and fare hikes – but the agency is still facing
1 Metropolitan Transportation Authority (MTA), Joint Long
Island & Metro-North Committees Meeting, (September
2021), Date accessed: September 20, 2021, https://new.mta.
info/document/52716.
2 Metropolitan Transportation Authority (MTA), MTA Press
Release, Facing Worst Financial Crisis in its History, MTA
Outlines Proposed 2021 Budget and Four-Year Financial
Plan, (November 18, 2020), Date accessed: December
16, 2020, https://www.mta.info/press-release/mta-
headquarters/facing-worst-financial-crisis-its-history-mta-
outlines-proposed-2021.
3 Robbins, Christopher, MTA Losing $200 Million Every
Week Thanks To “Fiscal Tsunami” Caused By Pandemic, The
Gothamist, (July 22, 2020), Date accessed: September 15,
2020, https://gothamist.com/news/mta-losing-200-million-
every-week-thanks-fiscal-tsunami-caused-pandemic.
large decits through 2025.
4
Given the MTA’s dire
nancial situation it may seem counterintuitive
to oer fare reductions, but there is evidence that
discounts produce ridership and revenue increases.
The LIRR’s Atlantic Ticket Field Study (Pilot
Program), based on the Freedom Ticket proposal put
forth by the New York City Transit Riders Council
(NYCTRC) of the Permanent Citizens Advisory
Committee to the MTA (PCAC), bears that out: from
implementation in June 2018 through June 2021,
more than 2 million Atlantic Tickets have been sold,
lling empty seats and resulting in nearly $16 million
in revenue for the LIRR.
5
The pilot program’s fare
reductions of 53 percent and 44 percent for one-way
and weekly tickets, respectively, led to an overall
45 percent increase in revenue at eligible stations
in 2019 over 2016, according to the LIRR Today –
showing that lowering fares does not necessarily
mean lower revenues.
6
Most importantly, riders who
were taking buses to connect to the subway were able
to reduce their travel times: many traveled up to two
hours each way and are now able to aord the LIRR
with a much shorter commute that is often only 40-
45 minutes each way.
The MTA is no stranger to transformation, as it has
been pursuing a restructuring eort to improve
coordination among its operating agencies to provide
better service for riders.
7
In the same vein, the MTA
will have to reinvent the way it provides service, while
also ensuring that all riders – including those on the
Long Island Rail Road (LIRR) and Metro-North
Railroad (MNR) – have aordable access to transit.
4 The MTA is facing a “potential $605 million deficit in 2025
even with use of $2.9 billion in deficit proceeds.” [NYS
News, Federal Funding Provides MTA with Financial
Stability Through First Half of 2024; No Fare Increase
in 2021, (July 21, 2021), Date accessed: August 5, 2021,
https://apps.cio.ny.gov/apps/mediacontact/public/view.
cfm?parm=E35B7F42-0B84-0B72-8DAA2C5E83FA4BAE_
EBC9704F-B388-9A4D-977E19D29433091E].
5 Long Island Rail Road (LIRR) Atlantic Ticket sales data.
These ticket and sales data only reflect actual Atlantic Ticket
figures and do not incorporate riders who have switched from
LIRR regular fares or from those who have switched from
NYC Transit fares to the Atlantic Ticket options.
6 The LIRR Today, Atlantic Ticket continues impressive
ridership and revenue growth, (September 20, 2020), Date
accessed: September 27, 2020, https://www.thelirrtoday.
com/2020/09/atlantic-ticket-continues-impressive.html.
7 Metropolitan Transportation Authority (MTA), Transforming
the MTA, (January 21, 2020), Date accessed: August 5, 2021,
https://new.mta.info/transformation.
ii
Both railroads are only collecting o-peak fares at all
times until December 31, 2021 due to lower ridership
and to encourage more people to take the train;
however, more permanent and far-reaching solutions
are needed. Therefore, this report addresses both
city and suburban fare restructuring and calls for the
following three phased in actions:
• Phase I: Atlantic Ticket Pilot Program – improve
purchasing options and marketing strategies to
reach more riders.
• Phase I: Expand the Freedom Ticket concept to
all LIRR and MNR city stations, with transfers to
NYC Transit subways and buses.
• Phase II: Implement O-Peak & Reverse Peak
Suburban Discount Pilot Programs on both the
LIRR and MNR for riders traveling to and from
New York City and within suburban zones; and
make Phase I pilot programs permanent and
establish benchmarks for Phase II permanence.
The economic hardships for many riders caused by
the pandemic and the available capacity created
by the decrease in ridership on both the LIRR and
MNR, combined with the MTA Board’s interest
in restructuring fares and the agency’s need for
revenue, makes this exactly the right time to
expand the Atlantic Ticket Pilot Program within the
Freedom Ticket framework.
8
Such expansion would
be particularly benecial to the essential workers
who are not able to work from home and would not
benet from a hybrid work schedule. In Northeast
and Central Queens, Far Rockaway, and the Bronx
along the Hudson and Harlem Lines, 35 percent
of the more than 834,000 workers in the proposed
Freedom Ticket expansion areas are employed either
in healthcare or the service industry; and 25 percent
of the over 2.1 million workers in the proposed
suburban discount areas of Nassau, Suolk, Dutchess,
8 MTA Board members discuss upcoming fare hike hearings
calling for no increases at this time, and that the agency
should consider fare discounts to incentive the ridership to
return [Metropolitan Transportation Authority, MTA Board
& Committee Meeting, (November 18, 2020), https://new.
mta.info/transparency/board-and-committee-meetings/
november-2020].
Putnam and Westchester counties are employed in
healthcare and service industry jobs.
9
The MTA must nd ways to attract commuters
back, attract new riders, and better accommodate
regional essential workers in the changing paradigm.
Reducing long travel times and providing a more
equitable regional fare structure will allow the
following to happen:
• Help regional riders and essential workers travel
more aordably and eciently.
• Fill empty commuter rail seats with fare-paying
riders.
• Support regional economic recovery eorts.
• Attract drivers out of their cars in time for
congestion pricing implementation, reducing
roadway congestion and CO2 emissions.
9 Essential workers: Healthcare workers include practitioners;
technical occupations; healthcare support occupations;
Service occupations include firefighters; law enforcement;
food preparation/serving occupations to include maintenance
occupations and personal care and service occupations
[American Community Survey 2019 1 Year Estimates, Public
Use Microdata Area, Date accessed: January 15, 2021. http://
data.census.gov/].
1
Introduction
In 2015, the New York City Transit Riders Council
(NYCTRC), one of three rider advisory Councils of
the Permanent Citizens Advisory Committee to the
MTA (PCAC), rst proposed the Freedom Ticket:
Southeast Queens Proof of Concept.
10
The focus was
to substantially reduce 2+ hour intra-city commutes
by creating an aordable city rail fare with a free
transfer to the subway and bus networks. The
concept would increase access to the Long Island
Rail Road (LIRR) for those living near rail stations in
Southeast Queens who might not otherwise be able
to aord it, and add revenue by lling empty seats. In
response, the Metropolitan Transportation Authority
(MTA) implemented the Atlantic Ticket Field Study
(Pilot Program) for Southeast Queens and Brooklyn
residents as a starting point due to relatively low
ridership on the Atlantic Branch.
11
Riders have
embraced the program: from implementation in
June 2018 through June 2021, more than 2 million
Atlantic Tickets have been sold, resulting in nearly
$16 million in revenue for the LIRR.
12
As the COVID-19 pandemic struck, PCAC was in the
midst of conducting a ridership analysis to determine
the feasibility of expanding the Freedom Ticket
concept to serve even more riders, nding substantial
o-peak commuter rail capacity within and outside
city limits on both the LIRR and Metro-North
Railroad (MNR). Even more capacity is now available
throughout the day due to changes in ridership
patterns borne from the pandemic: in response, both
commuter railroads are only collecting o-peak fares
at all times to help riders and incentivize more to
take the rails. As of July 2021, year-to-date ridership
levels rebounded to 41 percent for LIRR and 39
percent for MNR, compared to pre-pandemic levels
for July 2019.
13
These commuter rail ridership
10 New York City Transit Riders Council (NYCTRC), Freedom
Ticket: Southeast Queens Proof of Concept, (December
2015), Date accessed: April 16, 2020, https://www.pcac.org/
wp-content/uploads/2015/12/Freedom-Ticket-reduced.pdf.
11 Metropolitan Transportation Authority (MTA), Atlantic
Ticket Field Study, Date accessed: April 29, 2020, https://
new.mta.info/fares/atlantic-ticket.
12 Long Island Rail Road (LIRR) Atlantic Ticket sales data.
These ticket and sales data only reflect actual Atlantic Ticket
figures and do not incorporate riders who have switched from
LIRR regular fares or from those who have switched from
NYC Transit fares to the Atlantic Ticket options.
13 Metropolitan Transportation Authority (MTA), Joint Long
Island & Metro-North Committees Meeting, (September
2021), Date accessed: September 20, 2021, https://new.mta.
info/document/52716.
losses have resulted in severe farebox revenue
reductions, exacerbated by ongoing pandemic
response expenses. Furthermore, based on McKinsey
mid-point projections, the MTA has determined that
LIRR's 2025 annual ridership will be 78 million – 13
million less than 2019 levels; MNR's 2025 annual
ridership is projected to be 66 million – 20 million
less than 2019 levels. As a result, based on mid-point
projections, by 2025 combined commuter railroad
farebox losses could total over $3.3 billion.
14
The
MTA faces the challenges of developing more creative
and far-reaching solutions to support the region’s
riders and encourage more people to return to
transit.
Atlantic Ticket-type pilot programs can be part of the
solutions needed for both the MTA and riders alike.
Patrick Foye, former MTA chairman, has expressed
the need to take a closer look at the commuter rails
– to have them do more – especially as commuting
patterns have changed due to the pandemic.
15
Atlantic
Ticket has shown that decreasing commuter rail fares
can entice riders with more aordable and ecient
options – getting more out of our region’s commuter
rails.
Transit agencies, both past and present, have
lowered fares to increase ridership and revenue with
promising results. In 1993, Metro-North reduced
fares on its New Haven Line to support reverse and
intra-suburban commutes, resulting in ridership
increases of up to 10 percent – revenue grew for
these stations, but not for stations where fares were
not lowered. The success of this initiative resulted in
further fare reductions for reverse commuting from
the Bronx to Greenwich and Stamford, Connecticut,
with fares being lowered by as much as 20 percent.
During that time, ridership at those stations
increased by 34 percent, producing a net revenue
gain of 17 percent. In 1997, after continued success,
14 Metropolitan Transportation Authority (MTA), MTA 2022
Preliminary Budget, July Financial Plan 2022-2025, (July
2021), Date accessed: October 6, 2021, https://new.mta.info/
document/44476.
15 Martinez, Jose, MTA Eyes Commuter Rails as Discount
Subways Substitutes With Crowds Expected Back, The City,
(March 25, 2021), Date accessed: August 5, 2021, https://
www.thecity.nyc/2021/3/25/22351465/mta-eyes-commuter-
rails-as-discount-subways-substitutes-with-crowds-expected-
back.
2
fares were further discounted by 6 percent for reverse
commutes and 5 percent for intra-Connecticut
commutes, resulting in 15 percent ridership growth.
16
The Los Angeles region has also experimented with
lowering fares several times dating back to 1980
on L.A. Metro to increase ridership and revenue;
and fare reductions have been made on multiple
lines on southern California’s Metrolink commuter
rail service as recently as 2018. The Massachusetts
Bay Transportation Authority (MBTA) in Boston is
currently embarking on a “Fare Transformation”
initiative, overhauling its fare structure to be more
equitable. The agency’s Fairmount Line is the rst
test in this initiative; a pilot program has been
implemented to reduce fares and provides transfers
to subway lines and local bus routes (See Appendix
D for more details about fare reduction eorts in Los
Angeles and Boston, p.35).
Restructuring fares – like these agencies have done
and are doing – will also greatly contribute to the
goals of the Biden Administration’s “Build Back
Better” agenda, increasing aordable access to help
reverse long-standing inequities, especially when
coupled with the MTA’s expansion projects (i.e. East
Side Access) that will not only increase capacity,
but also improve service in transit underserved
communities.
17
Implementing an expanded Freedom
Ticket concept will benet more riders and provide
a more seamless and equitable fare structure,
supporting regional and national goals.
Freedom Ticket can:
• Help regional riders and essential workers travel
more aordably and eciently.
• Fill empty commuter rail seats with fare-paying
riders.
16 Regional Plan Association (RPA), Four Transit Issues on
Long Island, (April 2002), Date accessed: February 23,
2021,https://rpa.org/work/reports/four-transit-issues-on-
long-island.
17 The White House, FACT SHEET: The American Jobs
Plan, (March 31, 2021), Date accessed: April 9, 2021,
https://www.whitehouse.gov/briefing-room/statements-
releases/2021/03/31/fact-sheet-the-american-jobs-plan/.
• Support regional economic recovery eorts.
• Attract drivers out of their cars in time for
congestion pricing implementation, reducing
roadway congestion and CO2 emissions.
18
Therefore, the PCAC is urging the MTA and its
operating agencies to restructure fares for city and
suburban riders using the Freedom Ticket model
to benet all stakeholders. Freedom Ticket concept
expansion is timely and appropriate – riders and
the MTA need improved options. Plus, with the
advancement of the OMNY fare payment system, the
agency will have more exibility to adjust fares and
truly become – as the name implies – One Metro New
York. Originally scheduled for 2021 implementation,
the COVID-19 pandemic caused a delay in OMNY’s
commuter rail roll-out, now anticipated for 2022
for both LIRR and MNR. However, planning
and implementation must come to fruition more
expeditiously, as Freedom Ticket is needed now,
more than ever.
18 Not only can commuters save money by switching to public
transportation, the environment benefits from less car
pollution – individuals can save over $9,000 annually and
can reduce their carbon footprint by at least 4,800 pounds for
20 mile-round-trip commutes [Center for Climate and Energy
Solutions, Reducing Your Transportation Footprint, Date
accessed: February 9, 2021, https://www.c2es.org/content/
reducing-your-transportation-footprint/].
3
In June 2018, the MTA-LIRR implemented the
Atlantic Ticket Field Study to determine the ridership
eects of a reduced LIRR fare between ten Southeast
Queens and Brooklyn LIRR stations, including
Atlantic Terminal, with transfers to NYC Transit
subways and buses; this was recommended as a rst
step by the NYCTRC’s Freedom Ticket proposal.
19
Selection of the Atlantic Branch for the Field Study
was logical: many peak-hour trains were running
half empty, while many working-class riders from
Southeast Queens and Brooklyn were priced out of
the LIRR – often the closest transit option available.
Long and slow bus rides to Jamaica Center to access
the subway led to two-hour one-way commutes for
some, while Brooklyn riders barely used their LIRR
stations, hampering economic and community
growth and development.
As enacted, the Atlantic Ticket Field Study (Pilot
Program) reduces the LIRR one-way fares by 53
percent and provides an unlimited $60 weekly fare (a
44 percent decrease when factoring in both LIRR and
MetroCard weekly fares) with a transfer to subways
19 New York City Transit Riders Council (NYCTRC), Freedom
Ticket: Southeast Queens Proof of Concept, (December 2015),
Date accessed: April 26, 2020, http://www.freedomticket.
org/.
Atlantic Ticket Field Study
and buses.
20
Pre-pandemic, approximately 140,000
monthly trips were taken using Atlantic Ticket,
aording those riders with reduced commuting
times and travel costs.
21
In some instances, two-hour
commutes dropped to just 45 minutes each way,
while producing needed revenue on the underutilized
Atlantic Branch.
While this is good progress, the PCAC and riders
have voiced concerns during the course of the Pilot
Program regarding both ticket availability and
visibility and have called for several improvements
in both regards.
22
Ensuring the continued success of
the program is crucial to providing more riders with
an aordable option and helping the MTA-LIRR gain
much-needed revenue.
20 One-way LIRR peak fares are currently $10.75 compared
to Atlantic Ticket’s $5 one-way fare; LIRR weekly fare is
$75.00 – MetroCard weekly fare is $33.00 – totally $108.00
compared to the Atlantic Ticket’s $60 weekly fare with
transfers. [Metropolitan Transportation Authority, MTA
Fares & Tolls, Date accessed: August 9, 2021, https://new.
mta.info/fares].
21 The LIRR Today, Atlantic Ticket continues impressive
ridership and revenue growth, (September 20, 2020), Date
accessed: September 27, 2020, https://www.thelirrtoday.
com/2020/09/atlantic-ticket-continues-impressive.html.
22 The Atlantic Ticket is not available for purchase via eTix or
through onboard conductors. Ticket vending machines do
not direct riders to the Atlantic Ticket option at participating
stations [Ford, James, LIRR pilot program lowering cost to
travel between Queens, Brooklyn Manhattan is a success,
Pix11 News, (February 18, 2020), Date accessed: June
10, 2020, https://pix11.com/news/local-news/lirr-pilot-
program-lowering-cost-to-travel-among-queens-brooklyn-
manhattan-is-a-success].
Queens Village
Laurelton
Locust
Manor
Atlantic
Terminal
N
LIRR Atlantic Ticket Stations
Hollis
Jamaica
St. Albans
Rosedale
Nostrand Av
East New York
LIRR Atlantic Ticket Station Map
4
◦ Provide expanded ticket options such as
monthlies and 20-trip tickets with included
transfers to NYC Transit subways and buses.
◦ Provide a transfer option with the current
one-way fare, and extend the expiration date
to 60 days, just as it is for regular one-way
tickets.
◦ Include Atlantic Ticket on eTix, and ultimately
on OMNY.
Phase I
Improve the Atlantic Ticket Pilot Program
• Expand the Atlantic Ticket marketing campaign to attract more riders.
• Improve the Atlantic Ticket purchasing options for riders.
◦ Fix and reprogram LIRR ticket vending
machines (TVMs) to not only function
properly, but to also make Atlantic Ticket the
default option for lower fares at all eligible
stations.
23
◦ Include the Atlantic Ticket at JFK AirTrain
ticket vending machines, with advertisements
to inform incoming airline passengers of
its availability; and provide similar subway
station advertisements informing riders of a
faster way to get to the airport.
23 Currently, Atlantic Ticket is not one of the initial options on
the TVMs. Unless a rider knows about the Atlantic Ticket,
they could choose a station combination like Hollis to Atlantic
Terminal and pay the full peak fare. If a rider chooses any
station combination where Atlantic Ticket can be used, the
fare should automatically go to the lower value instead of the
full-price fare. In fact, many riders have been overcharged:
188,000 in 2018; 300,000 in 2019; and 231,817 in 2020 [The
Long Island Rail Road Today, LIRR overcharged 566,635
riders in 2020, (September 30, 2021), Date accessed: October
6, 2021, https://www.thelirrtoday.com/2021/09/lirr-
overcharged-566635-riders-in-2020.html ].
◦ Increase the amount of electronic and paper
advertisements in LIRR city stations and
onboard trains; in subway stations and
onboard trains; and at bus stops and onboard
buses.
◦ Better utilize social media platforms such
as Facebook, Twitter, Instagram, and the
MTA’s website and YouTube channel with
targeted Facebook and Instagram ads by
neighborhood.
◦ Include commercial advertising blasts on
radio and television and in newspaper and
newsletter ads, both print and online.
◦ Distribute marketing information at targeted
locations such as at nearby subway stations,
express bus stops, schools and houses of
worship in Southeast Queens and along the
Atlantic Branch while collecting voluntary
rider contact information (emails) to conduct
follow-up.
◦ Create marketing campaign benchmarks to
ensure progress is being made and develop an
Atlantic Ticket-specic rider survey to better
understand how riders learned of the program
and what improvements they would like to
see.
5
DEMOGRAPHIC AREA
Northeast & Central
Queens
Bronx: Metro-North
Hudson & Harlem Line
HEALTHCARE
WORKERS
SERVICE INDUSTRY
WORKERS
COMBINED HEALTHCARE
& SERVICE INDUSTRY
TOTAL
WORKFORCE
23,520
18,380
76,784
154,792
100,304
173,172
27%
42%
371,827
412,239
TOTALS
44,046
249,095 293,141
35%
834,124
Far Rockaway
2,146
17,519 19,665
39%
50,058
Table 1: Essential Workers
Freedom Ticket Expansion
While the pandemic has resulted in many New
Yorkers working from home, which many will
continue to do, that is not the case for essential
workers, many of whom live in the outer boroughs.
Of the more than 834,000 workers in the combined
proposed Freedom Ticket expansion areas, 35
percent (293,000) are employed either in healthcare
or the service industry. Of these total workers who
took transit pre-pandemic, only 4 percent took
commuter rail to work on weekdays, while 95 percent
took subways and buses – illustrating the extreme
cost dierence.
24
There is also a reduced amount of teleworking
ability in the outer boroughs overall: according to
the New York City Department of City Planning.
Only 33 percent of residents living near the Bayside,
Queens LIRR station have teleworking capabilities;
and only 28 percent of residents living near the
Bronx’s Tremont MNR station – compared to 48
percent teleworking capabilities for many Manhattan
residents, like those in Midtown.
25
According to the
Partnership for New York City survey results released
in June 2021, the total share of oce employees
expected to return by the end of September 2021 is
62 percent. The vast majority (71 percent) of
24 American Community Survey (ACS) 2019 1 Year Estimates,
Public Use Microdata Area (PUMA), Date accessed: January
15, 2021, http://data.census.gov/.
25 New York City Department of City Planning, NYC
Metropolitan Region Telework Capability, Date accessed:
February 3, 2021, https://www.arcgis.com/apps/mapviewer/
index.html?layers=9248f61177e441aeb9bf2952c7feb858.
employers plan to adopt a rotating or “hybrid” oce
schedule; of those employers implementing a hybrid
model, most (63 percent) will require employees to
be in the oce three days per week.
26
Furthermore, a
more recent survey released in August 2021 from the
Association for a Better New York found nearly 35
percent of responding organizations are already back
in the oce, and 44 percent are targeting a return to
the oce after Labor Day. A full one-third indicated
that the predominant style of work will be a hybrid of
in-person and remote.
27
Connectivity in the Bronx comes with its own set
of issues. On MNR’s Hudson Line, the University
Heights, Morris Heights, Spuyten Duyvil, and
Riverdale stations are far from subway stations;
and near the Harlem Line, residents close the
Third Avenue corridor in the Bronx have suered
poor transit access since the demolition of the
Third Avenue “el” in the 1970s. Better connecting
this corridor has long been debated with diering
proposals, including those in the Regional Plan
Association’s (RPA) 2008 report, Tomorrow’s
Transit.
28
In the report, RPA acknowledges the
need to provide improved transit options for Bronx
residents, which is still an issue today – thirteen
26 Partnership for New York City - Return to Office Survey
Results Released (June 2021), Date accessed: August 2, 2021,
https://pfnyc.org/news/return-to-office-survey-results-
released-june-2021/.
27 Association for a Better New York (ABNY), Return to
Office Survey, (August 2021), Date accessed: August 19,
2021, https://drive.google.com/file/d/1N7Rhxzlp8Z3_
Zktmi4KFWWLLj2TzJPNK/view.
28 Regional Plan Association (RPA), Tomorrow’s Transit,
(2008), Date accessed: March 23, 2021, https://rpa.org/
work/reports/tomorrows-transit.
6
DEMOGRAPHIC AREA
Northeast & Central
Queens
Bronx: Metro-North
Hudson & Harlem Line
TOTALS
SUBWAY & BUS RIDERS COMMUTER RAIL RIDERS
TOTAL
167,945
247,595
431,979
52%
71%
60%
8,362
11,675
3%
3%
Far Rockaway
16,439
37%
327
1%
CAR DRIVERS
143,147
87,394
44%
25%
27,742
62%
TOTAL COMMUTERS
(subway, bus, commuter rail, car)
321,766
347,840
44,414
258,283
36%
20,364
3%
714,020
Table 2: Weekday Commuting to Work by Mode
years later. Recommendations they put forth include
the extension of the Second Avenue Subway (SAS), a
Metrolink Connector, Bus Rapid Transit, and lower
fares for the current MNR stations in the area. Given
the current context of the COVID-19 pandemic and
extremely limited funding and competing demands
for the MTA’s Capital Program, extending the SAS to
the Bronx is unrealistic at this time. If it does come
to fruition, it will be in the distant future, and riders
need options now.
Additionally, only a few blocks away from the
Melrose, Tremont, and Fordham MNR stations, the
Third Avenue corridor is a major commercial district
that includes several hospitals and educational
facilities. Along the corridor and in the surrounding
neighborhoods are St. Barnabas Hospital; Lebanon
Hospital Center; Fordham University; and the Bronx
Center for Science and Mathematics, among other
institutions and destinations. Providing aordable
access to these locations will help essential workers of
today and tomorrow get to school, work, and home.
As Atlantic Ticket has slashed Southeast Queens
commutes from nearly two hours to just 45 minutes,
discounts provided to these Bronx residents and to
LIRR commuters in Far Rockaway and Northeast
and Central Queens will oer more aordable access
and improved travel times to many more New
Yorkers. Pairing discounted commuter rail fares with
transfers to NYC Transit subways and buses will help
attract riders to a faster service – supporting a more
equitable system and city.
7
Q13 to
7
82
LIRR
28
QM3 Express Bus
69
Car
55
Figure 1: Northeast Queens Travel Times (minutes)
41
Bx40 to
4
61
MNR
25
4
Burnside Av.
94
BxM4 Express Bus
35
Car
Figure 2: Bronx - Metro-North Hudson Line Travel Times (minutes)
Notes:
• Figure 1: Bayside LIRR Station to Midtown Manhattan (LIRR to Penn Station; 7 train to
Times Square-42nd Street; QM3 to Midtown Manhattan)
• Figure 2: Morris Heights Station/Burnside Av. 4 Train Station to Grand Central Terminal;
BxM4 from E. Tremont Av. to Grand Central Terminal
◦ Depending on origin point, riders can board the Bx40 to the 4 train at the Burnside
Avenue station or simply walk to the station.
◦ The closest and easiest to access express bus is near E. Tremont Avenue - closer to the
MNR Tremont Station.
8
Penn Station
LIC
Hunterspoint
Ave
Woodside
Forest
Hills
Kew
Gardens
Flushing
Main Street
Murray
Hill
Broadway
Auburndale
Bayside
Douglaston
Little
Neck
Jamaica
Atlantic
Terminal
N
Freedom Ticket Expansion Stations
Other LIRR Stations
Far Rockaway
LIRR Freedom Ticket Expansion Map
LIRR City Ridership Analysis: 2019, 2020, and Beyond
When comparing LIRR’s 2020 ridership to
2019’s pre-pandemic ridership, it is clear to see
the devastation that has been wrought. Although
ridership has been returning in greater numbers, it is
still merely a fraction of what it used to be, standing
at 41 percent of pre-pandemic levels as of July 2021
– indicating thousands of unused seats. In its MTA-
funded analysis, McKinsey & Company estimated
that in a best-case scenario, 80-90 percent of
ridership will return by 2024. According to the MTA’s
July Financial Plan, consistent with current ridership
trends, the agency used the midpoint of best-case and
worst-case scenarios and has projected that LIRR
2025 annual ridership will be slightly over 78 million
– 86 percent of pre-pandemic levels.
29
Furthermore,
by the time this anticipated ridership level is met,
major capacity-building expansion projects are slated
29 Metropolitan Transportation Authority (MTA), July
Financial Plan 2022-2025 Volume 2, (July 2021),
Date accessed: August 9, 2021, https://new.mta.info/
document/44476#page=236 .
to open including East Side Access (ESA),
30
Long
Island’s Third Track, and eventually Penn Station
Access (PSA) in 2025. These expansion projects
will provide even more capacity to accommodate an
expanded Freedom Ticket concept: advancing the
vision of a more integrated MTA network. Therefore,
the purpose of the following analysis is to illustrate
where we were before the pandemic, during the
height of the pandemic, and where we need to go
from here to bring more riders back.
30 East Side Access (ESA) will reduce AM-peak LIRR commuter
activity at Penn Station by 45 percent – 65,000 daily riders
will be diverted to Grand Central Terminal during the
morning rush (Metropolitan Transportation Authority, East
Side Access MTA Long Island Rail Road Grand Central
Connection – Final Environmental Impact Statement (FEIS),
March 2001, Date accessed: September 10, 2020, http://web.
mta.info/capital/esa_docs/feisfiles/09_transportation.pdf).
9
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
96%
96%
95%
95%
88%
57%
63%
80%
85%
82%
85%
88%
89%
89%
89%
90%
91%
91%
91%
92%
93%
92%
93%
94%
Chart 1: 2020 Weekday % Empty Seats by Hour
Peak
Off-Peak
86%
PENN
JAMAICA/
PORT WASH.
WESTBOUND-TRIPS
West-bound Trips
Jamaica & Little Neck to Penn Station
The following data analyzed includes all 2019 and
2020 trains traveling between Penn Station and
Jamaica, and on the Port Washington Branch as far
as Little Neck.
31
31 Trains stopping at and/or terminating at Kew Gardens,
Forest Hills, Woodside, Hunterspoint Avenue, Long Island
City, and Far Rockaway were included in the ridership data
analysis. In addition, seat count data is released annually –
the LIRR 2021 data will be available early 2022. The complete
methodology can be found in Appendix A, p.30. All ridership
data was obtained from the LIRR 2019 & 2020 Ridership
Books.
In 2020, trains traveling from Jamaica to Penn
Station and trains traveling from the Port
Washington Branch to Penn Station had an overall
86 percent of seats empty, totaling over 212,000
available seats on any given weekday.
The percentage indicates a steep escalation in empty
seats compared to 2019, as seen in Charts 1 and
2. While pre-pandemic there were ample o-peak
empty seats, this was not the case during peak hours.
In 2019, during the 8 AM hour, from Jamaica to Penn
Station from Little Neck on the Port Washington
Branch to Penn Station, only 19 percent of overall
seats were empty; in 2020, 85 percent of overall seats
were empty.
Empty Full
10
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
97%
98%
98%
98%
86%
33%
28%
22%
19%
26%
53%
63%
74%
77%
74%
77%
72%
71%
70%
84%
89%
89%
91%
94%
Chart 2: 2019 Weekday % Empty Seats by Hour
Peak hour empty seats increased by 233% from 2019 to 2020 between
Jamaica and Penn Station.
11
12 AM 1 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
93%
96%
96%
93%
94%
90%
88%
91%
92%
93%
93%
89%
85%
68%
68%
79%
84%
85%
87%
86%
91%
92%
93%
Chart 3: 2020 Weekday % Empty Seats by Hour
East-bound Trips
Penn Station to Jamaica & Little Neck
86%
PENN
JAMAICA/
PORT WASH.
EASTBOUND-TRIPS
In 2020, trains traveling from Penn Station to
Jamaica and along the Port Washington Branch were
similar to those traveling in the opposite direction,
with an overall 86 percent of seats empty. The total
available seats between Penn Station, Jamaica, and
the Port Washington Branch in 2020 amounted to
over 202,000 on any given weekday.
The percentage rise of empty seats during afternoon
peak hours is similar to that of the morning peak –
from Penn Station to Jamaica and Penn Station to
Little Neck on the Port Washington Branch during
the 6 PM hour, only 14 percent of overall seats were
empty; in 2020, 85 percent of overall seats were
empty.
12
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
85%
89%
95%
96%
94%
93%
88%
79%
83%
88%
89%
86%
75%
76%
57%
34%
41%
26%
14%
25%
36%
46%
58%
78%
Chart 4: 2019 Weekday % Empty Seats by Hour
Peak hour empty seats increased by 200% from 2019 to 2020 between
Penn Station and Jamaica.
13
Spuyten Duyvil
Riverdale
Melrose
Tremont
Fordham
Botanical Garden
Williams Bridge
Marble Hill
Woodlawn
Harlem -
125th Street
Grand Central
Terminal
N
Freedom Ticket Expansion Stations
Yankees -
E.153rd Street
Morris Hts.
University Hts.
MNR Freedom Ticket Expansion Map
MNR City Ridership Analysis
In April, MNR released its 2020 ridership analysis,
comparing it to pre-pandemic ridership levels of
2019. Overall, the Railroad saw nearly 60 million
fewer rides in 2020. Both the Hudson and Harlem
Lines’ ridership was down nearly 68 percent, and the
New Haven Line’s ridership was down 69 percent
compared to 2019. Throughout 2020, total weekday
ridership in and out of Grand Central Terminal was
down nearly 84 percent, with a nearly 80 percent
decrease in weekday o-peak ridership
32
– clearly
illustrating the need to attract riders back at all hours
of the day.
At the time of this writing, while overall ridership
numbers were available, up-to-date empty seat count
data was not available for us to conduct a 2020 vs.
2019 comparison; however, as indicated above, low
ridership levels have left many seats empty at all
times. According to the MTA’s July Financial Plan,
consistent with current ridership trends, the agency
32 Metropolitan Transportation Authority (MTA), Joint Long
Island & Metro-North Committees Meeting, (April 2021),
Date accessed: April 22, 2021, https://new.mta.info/
document/37071.
used the midpoint of McKinsey & Company’s best-
case and worst-case scenarios and has projected
that MNR 2025 annual ridership will be slightly
over 66 million – 76 percent of pre-pandemic
levels.
33
By the time the projected 2025 ridership
has returned, MNR’s Penn Station Access (PSA) is
anticipated to be in operation – expanding faster
service to East Bronx underserved communities and
freeing up track space at Grand Central Terminal
to potentially accommodate increased service. This
freed up capacity could be used to increase service
to Bronx stations like Tremont and Melrose, which
experienced an 81 percent ridership increase
34
following the doubling of midday and weekend
service and the extension of the service span in
mornings and evenings in 2016.
35
Adding Freedom
Ticket discounts at MNR city stations, and for the
eventual four new Bronx stations, will help complete
the vision of a more integrated MTA network.
Furthermore, before the pandemic hit, we found
ample available capacity during
2019 o-peak hours with some
trains as high as 90 percent
empty. To illustrate those
ndings, visuals for overall
weekday empty seats for the
Hudson and Harlem Lines are on
page 14 (Methodology and full-
ridership analysis can be found
in Appendix B, p.30):
33 Metropolitan Transportation
Authority (MTA), July Financial Plan
2022-2025 Volume 2, (July 2021), Date
accessed: August 9, 2021, https://new.
mta.info/document/44476#page=270.
34 Metropolitan Transportation
Authority (MTA) Press Release, Metro-
North Increases Service at Melrose and
Tremont Stations, (October 17, 2017),
Date accessed: October 6, 2021, https://
www.mta.info/press-release/metro-
north/metro-north-increases-service-
melrose-and-tremont-stations.
35 Metropolitan Transportation
Authority (MTA) Press Release,
New Metro-North Schedules Take
Effect on Sunday, October 2, To
Improve Reliability and Convenience,
(September 26, 2016), Date accessed: October 6, 2021,
https://www.mta.info/press-release/metro-north/new-
metro-north-schedules-take-effect-sunday-october-2-
improve-0 .
14
Hudson Line
79%
GCTBRONX
SOUTHBOUND-TRIPS
79%GCT BRONX
NORTHBOUND-TRIPS
Harlem Line
70%
GCTBRONX
SOUTHBOUND-TRIPS
67%
GCT BRONX
NORTHBOUND-TRIPS
MNR 2019
Off-Peak Ridership Summary
The following visuals illustrate 2019 o-peak empty
seats between MNR Hudson and Harlem Line
stations and Grand Central Terminal.
Empty Full
15
Phase I
Expand Freedom Ticket to All LIRR and MNR City Stations with Transfers to NYC Transit
Subways and Buses.
• Transparency: Create a Freedom Ticket Task
Force to oversee a thorough fare restructuring
study to help provide timely recommendations;
make ridership and revenue data public; identify
funding opportunities; and provide quarterly
reports to the MTA Board.
36
37
• Service: Restore pre-pandemic service, expand
service frequency where needed, and make
necessary adjustments to midday and shoulder-
of-the-peak service to accommodate more riders
traveling during these times.
• Crews: Ensure appropriate stang levels and
necessary training for all railroad personnel to
be equipped with the knowledge of the new fare
program to better assist riders.
• Transfers: Improve bus service to outer
borough commuter rail stations to enable more
seamless connections between the two modes.
38
• Fare Payment Flexibility: Expedite OMNY
rollout on the commuter railroads to allow for
easier reduced fare implementation.
• Expansion Projects:
◦ Include Freedom Ticket discounts while
developing service plans for East Side Access,
Third Track, and Penn Station Access.
39
◦ Build platform extensions at various stations
to accommodate more passengers.
40
36 CH2M Hill (CH2M) and LTK Engineering Services
(LTK) studied California’s MetroLink fare system,
evaluating ridership, fare elasticities, fare changes,
and revunue impacts [Metrolink – Southern California
Regional Rail Authority, Metrolink Board of Directors
Meeting, (July 24, 2015), Date accessed: February 5,
2021, http://metrolink.granicus.com/DocumentViewer.
php?file=metrolink_3a03b149d424633411da0df0a22d59a7.
pdf&view=1#page=45].
37 PCAC sees an expanded Freedom Ticket concept as
revenue generating. However, there may be situations that
may require additional funding (i.e. transfers). Funding
opportunities should be evaluated to help support the
program (See Outer Borough Transportation Account, p.28).
38 See Appendix E: Outer Borough and Suburban Bus
Connections, p.39.
39 Penn Station Access includes four new Bronx stations: Hunts
Point; Parkchester/ Van Nest; Morris Park; Co-Op City.
40 See Appendix F for a list of stations that need platform
extensions, p.41.
Integrated and Flexible Fare Structures
Elsewhere
Boston: The Massachusetts Bay Transportation
Authority’s (MBTA) fare payment systems can be
loaded with subway, bus, commuter rail tickets,
but free transfers are not available between modes
unless riders get a monthly CharlieTicket pass.
41
However, the CharlieCard pilot program for Zone 1A
at Fairmount Line stations provides free transfers
between commuter rail and subways and buses. The
system uses fare validators on station platforms.
42
London: London has contactless cards (available
on mobile devices) and Oyster Cards, which can be
used for buses, tubes (subway), trams, the London
Overground, the DLR (Docklands Light Railway), TfL
Rail, and most National Rail service within London.
Both cards support daily fare capping, but contactless
cards also support weekly fare capping. Riders
can add travelcards to Oyster Cards, allowing for
unlimited day, week, or monthly travels within valid
zones.
43
Paris: Paris's Navigo Pass provides weekly, monthly,
and annual fare packages that can be used on all
modes-metro within specied fare zones.
44
Cardboard
T+ tickets are available for single trips, and allow for
free transfers between buses and trams, or between
the RER and the Metro in 90 minutes. There is a
mobile app for fares, where riders can get daily,
weekly, and monthly fare packages.
45
41 Massachusetts Bay Transportation Authority (MBTA), Fares
Overview, Date accessed: August 9,2021, https://www.mbta.
com/fares.
42 Massachusetts Bay Transportation Authority (MBTA),
Fairmount Line Weekday Service Pilot, Date accessed:
August 9, 2021, https://www.mbta.com/projects/fairmount-
line-weekday-service-pilot.
43 Transport For London (TfL), Oyster pay as you go, Date
accessed: August 9, 2021, https://tfl.gov.uk/fares/how-to-
pay-and-where-to-buy-tickets-and-oyster/pay-as-you-go/
oyster-pay-as-you-go?intcmp=55536.
44 Ile-de-France, Navigo Week package, Date accessed: August
9, 2021, https://www-iledefrance--mobilites-fr.translate.
goog/titres-et-tarifs/detail/forfait-navigo-semaine?_x_tr_
sl=fr&_x_tr_tl=en&_x_tr_hl=en-US&_x_tr_pto=ajax,elem.
45 Ile-de-France, Ticket t+, Date accessed: August 9, 2021,
https://www-iledefrance--mobilites-fr.translate.goog/titres-
et-tarifs/detail/ticket-t?_x_tr_sl=fr&_x_tr_tl=en&_x_tr_
hl=en-US&_x_tr_pto=ajax,elem.
16
DEMOGRAPHIC AREA
Nassau
Suffolk
Dutchess
Putnam
HEALTHCARE
WORKERS
SERVICE INDUSTRY
WORKERS
COMBINED HEALTHCARE
& SERVICE INDUSTRY
TOTAL
WORKFORCE
59,209
55,572
10,680
3,927
117,415
135,791
27,942
10,479
176,624
191,363
38,622
14,406
25%
25%
26%
27%
697,994
774,500
149,344
52,900
Westchester
34,075
82,193 116,268
24%
485,843
TOTALS
163,463
373,820 537,283
25%
2,160,581
Table 3: Essential Workers
Suburban Discounts: Off-Peak & Reverse Peak Pilot Programs
Providing fare relief for commuters outside the city
will help ease the more immediate crises of low
ridership and revenue caused by the pandemic and
provide long-term travel options which can help
support the workforce and economy for the region’s
suburban communities. Both railroads currently have
intermediate fares for travel between some zones and
stations; however, more must be done to encourage
more riders to get onboard. The PCAC recommends
providing more fare relief for riders traveling to
and from New York City and within suburban zones
by implementing steeper O-Peak & Reverse Peak
Suburban Discount Pilot Programs when peak
fares are again instituted in 2022. Of the more
than 2.1 million workers in the proposed suburban
discount areas of Nassau, Suolk, Dutchess, Putnam
and Westchester counties, 25 percent overall are
employed in healthcare and service industry jobs.
46
LIRR commuters who live the furthest out on Long
Island, and Metro-North riders who live in the most
northern suburban counties, pay up to $500 per
month – well over $600 per month when factoring in
city subway/bus fares.
47
46 American Community Survey (ACS) 2019 1 Year Estimates,
Public Use Microdata Area (PUMA), Date accessed: January
15, 2021, http://data.census.gov/.
47 Metropolitan Transportation Authority (MTA), LIRR and
Metro-North fares, Date accessed: September 23, 2020,
https://new.mta.info/fares/lirr-metro-north.
These high costs are prohibitive for some riders and
provide reason for a discounted commuter rail fare
program. Lowering these fares will also support
reverse commuting and inter-and intra-county travel
on Long Island and in the MNR region. An increase
in these types of commutation could promote job
creation, economic recovery, and growth in our
suburban communities, and could attract new
riders to reduce the number of car trips – reducing
congestion and CO2 emissions.
In LIRR territory there are over 120,000 Queens
residents who work in either Nassau or Suolk
counties, not far behind the 126,000 Queens
residents who work in Brooklyn.
48
These Queens
residents will greatly benet from Long Island’s Third
Track project that is planned to add eight additional
reverse-peak trains in both the AM and PM peak
periods – totaling a 60 percent increase in reverse-
peak service.
49
To take full advantage of the $2.6
billion investment the MTA has made in the Third
Track project, fare discounts should be provided,
which would incentivize riders to use this service –
allowing more aordable access to Long Island job
locations.
48 United States Census Bureau, On The Map, (2018), Date
accessed: August 10, 2021, https://onthemap.ces.census.
gov/.
49 A Modern LI, Long Island Rail Road Expansion Project
Draft Environmental Impact Statement (DEIS), (November
28, 2016), Date Accessed: August 10, 2021, https://
www.amodernli.com/wp-content/uploads/2016/11/10_
Transportation.pdf#page=8.
17
DEMOGRAPHIC AREA
Nassau
Suffolk
Dutchess
Putnam
COMMUTER RAIL RIDERS
74,676
36,270
4,403
3,546
Westchester
72,815
TOTAL
191,710
13%
5%
4%
7%
19%
87%
95%
96%
93%
81%
508,203
659,353
121,190
45,846
307,352
CAR DRIVERS
TOTAL COMMUTERS
(Car & Commuter Rail)
582,879
695,623
125,593
49,392
380,167
1,641,944 1,833,654
90% 10%
Table 4: Weekday Travel to Work Mode
Increasing reverse-peak service in coordination with
fare decreases has been proven to work in the Metro-
North region. In the early 1980s, reverse-peak travel
from Manhattan and the Bronx to jobs in Connecticut
and Westchester County was growing. MNR began
increasing service and lowering fares for these riders,
which led to major ridership increases. The railroad
continued making reverse-peak adjustments between
1982
50
and 2014, producing a 398 percent increase in
reverse-peak AM ridership to White Plains
51
– service
was increased in this market by 54.5 percent.
52
Alongside the implementation of suburban discounts,
MNR and LIRR should consider adding service, when
warranted.
50 Hearth, Amy Hill, The Commuter's Destination Is the County,
The New York Times, (March 17, 1991), Date accessed:
October 11, 2021, https://www.nytimes.com/1991/03/17/
nyregion/the-commuter-s-destination-is-the-county.html.
51 Marchwinski, Thomas, Applications in Transit Planning,
(April 22, 2016) Date accessed: October 6, 2021, https://
associationdatabase.com/aws/APAOH/asset_manager/
get_file/125598?ver=6159#page=22.
52 Metro-North Railroad, Service Schedules (change in service
between 1984 & 2014 timetables), Date accessed: October 6,
2021, http://web.archive.org/web/20140114022434/http:/
www.mta.info/mnr/html/planning/schedules/pdf/Har_MF_
JAN182014.pdf.
Providing 191,000 daily pre-pandemic commuter
rail users
53
with more aordable fares will help
attract them back, while generating revenue for both
MNR and LIRR by lling empty seats with paying
customers. During the course of the pandemic, both
railroads have been only collecting o-peak fares
to help riders and draw them to use the service;
however, at the end of 2021, peak fares will be
reinstated and longer-term and more far-reaching
discounts will be needed. In addition, suburban
drivers will need an attractive alternative to driving
with the implementation of congestion pricing - that
alternative must be the commuter rails.
53 American Community Survey (ACS) 2019 1 Year Estimates,
Public Use Microdata Area (PUMA), Date accessed: January
15, 2021, http://data.census.gov/.
18
N
LIRR Suburban Discount Stations
Penn Station
Atlantic Terminal
Jamaica
Greenport
Montauk
Oyster Bay
Port Washington
Long Beach
Inwood
LIRR Suburban Discount Map
LIRR Suburban Ridership Analysis: 2020 vs. 2019
In concert with the city ridership analysis comparing
LIRR’s 2020 ridership to 2019’s pre-pandemic
ridership, COVID-19’s impact is clear. The 2019
ridership has started to return but is only at 41
percent of what it used to be as of July 2021 –
leaving thousands of seats still empty. All 2020
and 2019 trains traveling between Long Island and
Jamaica and along the Port Washington Branch
between Penn Station and Port Washington were
included in the analysis.
54
54 Since the Port Washington Branch does not run through
Jamaica, all Port Washington Branch data is for the entire
Branch – between the Port Washington LIRR station and
Penn Station in both directions. This data also includes trains
servicing intermediate stations like LIC and Woodside.
19
87%
LONG ISLAND JAMAICA
WESTBOUND-TRIPS
Note: All Figures include Port Washington Branch empty seats between Port Washington and
Penn Station.
West-bound Trips
Long Island to Jamaica & Port Washington to Penn Station
Babylon
Far Rockaway
Hempstead
Huntington
Long Beach
Montauk
Oyster Bay
Port Jefferson
Port Washington
Ronkonkoma
West Hempstead
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Percentage Empty
97%
79%
89%
82%
90%
90%
89%
87%
87%
89%
84%
Chart 5: 2020 % Empty Seats Branch Breakdown
In 2020, 87 percent of seats were empty on trains
traveling from Long Island to Jamaica and on city-
bound Port Washington Branch trains, totaling over
244,000 available seats on any given weekday.
While there were ample o-peak empty seats pre-
pandemic, this was not the case during peak hours.
During the 8 AM hour in 2019, only 24 percent of
overall seats were empty from Long Island to Jamaica
and along the Port Washington Branch; however, in
2020, 85 percent of overall seats were empty.
Empty Full
20
Chart 6: 2020 Weekday % Empty Seats by Hour
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
96%
96%
96%
94%
91%
78%
64%
82%
85%
85%
89%
91%
91%
91% 91% 91%
91%
90%
91%
92%
94%
92%
94%
95%
Peak
Off-Peak
21
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
97%
98% 98%
97%
88%
52%
28%
26%
24%
42%
58%
69%
76%
77%
77%
78%
75%
71%
64%
84%
89%
87%
90%
94%
Chart 7: 2019 Weekday % Empty Seats by Hour
Peak hour empty seats increased by 149% from 2019 to 2020 between
Long Island stations and Jamaica.
22
86%
LONG ISLANDJAMAICA
EASTBOUND-TRIPS
Babylon
Far Rockaway
Hempstead
Huntington
Long Beach
Montauk
Oyster Bay
Port Jefferson
P
ort Washington
Ronkonkoma
W
est Hempstead
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
97%
79%
89%
82%
90%
90%
89%
87%
87%
89%
84%
Chart 8: 2020 % Empty Seats Branch Breakdown
East-bound Trips
Jamaica to Long Island & Penn Station to Port Washington
In 2020, 86 percent of seats were empty on trains
traveling from Jamaica to Long Island and on Port
Washington-bound trains, totaling over 213,000
available seats on any given weekday.
While there were ample o-peak empty seats pre-
pandemic, this was not the case during peak hours.
From Jamaica to Long Island and on the Port
Washington Branch, only 27 percent of overall seats
were empty during the 6 PM hour; however, in 2020,
84 percent of overall seats were empty.
23
12 AM 1 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
93%
96%
96%
92%
92%
86%
85%
89%
92%
92% 92%
89%
86%
67%
68%
79%
85%
84%
88%
88%
91%
92%
93%
Chart 9: 2020 Weekday % Empty Seats by Hour
24
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
90%
91%
98%
96%
93%
90%
79%
73%
76%
83%
86%
84%
77%
76%
59%
42%
41%
32%
27%
41%
50%
65%
67%
80%
Chart 10: 2019 Weekday % Empty Seats by Hour
Peak hour empty seats increased by 114% from 2019 to 2020 between
Jamaica and Long Island stations.
25
Harlem -
125th Street
N
MNR Suburban Discount Stations
Port Chester
Grand Central
Terminal
Wassaic
Poughkeepsie
MNR Suburban Discount Map
MNR Suburban Ridership Analysis
As mentioned in the MNR City Ridership Analysis
above, the railroad released its 2020 ridership
analysis, comparing it to pre-pandemic ridership
levels of 2019. Overall, the Railroad saw nearly 60
million fewer rides in 2020.
For the PCAC’s MNR ridership analysis, the
maximum load point of trains traveling to and from
Grand Central Terminal was used to determine
seating availability for both city and suburban riders.
The maximum load point is the count of the highest
number of passengers recorded on each line between
two outlying stations at any given point – therefore,
the city and suburban analyses are one and the same.
For inbound trips, counts are conducted at least one
stop prior to Harlem-125th Street; and outbound
trips counts are conducted at least one station stop
after Harlem-125th Street.
55
For these ndings,
refer to the MNR City Ridership Analysis (p.13),
and Appendix B & C (p.30 & 37) for more detailed
methodology and ridership ndings for 2019.
55 Metropolitan Transportation Authority (MTA), Metro-North
Railroad Fall 2019 Ridership Book – GCT Line Counts.
26
70%
GCTBRONX
SOUTHBOUND-TRIPS
67%
GCT BRONX
NORTHBOUND-TRIPS
79%
GCTBRONX
SOUTHBOUND-TRIPS
79%GCT BRONX
NORTHBOUND-TRIPS
62%
GCTBRONX
SOUTHBOUND-TRIPS
56%GCT BRONX
NORTHBOUND-TRIPS
MNR 2019
Off-Peak Suburban Ridership Summary
Hudson Line
Harlem Line
New Haven Line
The following visuals illustrate 2019 o-peak empty
seats between MNR Hudson, Harlem, and New
Haven Line stations and Grand Central Terminal.
Empty Full
27
Hudson Line
Harlem Line
New Haven Line
Phase II
Implement Off-Peak & Reverse Peak Suburban Discount Pilot Programs
Provide suburban discounts for all commuter rail
riders traveling to and from New York City and
within suburban zones, including discounts for MNR
riders within New York State on the New Haven Line.
• Transparency: Incorporate an O-Peak and
Reverse Peak Suburban Discount Pilot Program
component into the fare restructuring study
of the Freedom Ticket Task Force included
in Recommendation 2 to provide timely
recommendations; make ridership and revenue
data public; identify funding opportunities; and
provide quarterly reports to the MTA Board.
• Service: Restore pre-pandemic service, expand
service frequency where needed, and make
needed adjustments to midday and shoulder-of-
the-peak service to accommodate more riders
traveling during these times.
• Crews: Ensure appropriate stang levels and
necessary training for all railroad personnel to
be equipped with the knowledge of the new fare
program to better assist riders.
• Transfers:
◦ Work with local elected ocials to help
identify funding opportunities to provide
transfers to New York City Transit subways
and buses for city-bound commuters and
suburb-bound reverse-commuters.
◦ Work with suburban bus operators to improve
connections to rail stations and develop
funding strategies to provide transfers
between modes and providers.
56
• Fare Payment Flexibility: Expedite OMNY
rollout on the commuter railroads to allow for
easier reduced fare implementation.
56 See Appendix E: Suburban Bus Connections for more details
on the need to provide improved connections and transfers
between suburban bus operators and the MTA’s commuter
railroads’ which also includes discussion points on the
relatively unknown UniTicket program, p.39.
• Expansion Projects:
◦ Include these discounts in developing service
plans for East Side Access (ESA), LIRR’s
Third Track, and Penn Stations Access (PSA),
and examine ridership data to determine
feasibility of including peak-hour suburban
discounts as operational capacity expands.
◦ In addition to weekday discounts, include
weekend one-way discounts similar to the
CityTicket program to support inter-zone
suburban weekend travel.
57
Current Suburban Discounts:
Both railroads have intermediate fares between
certain zones and stations. On the LIRR, one-way
fares within a specic zone and between neighboring
zones are just $3.25. For example, in Zone 10 the
$3.25 fare is good for travel within Zone 10 and to
Zones 9 and 12. This fare is in place to encourage
local travel.
On MNR’s Harlem Line, travel between Scarsdale
through North White Plains is just $3.00. This is
also true for travel between stations like Valhalla and
Chappaqua, and Mount Vernon West and Crestwood.
While these discounted fares are low and provide
relief to some riders, more can still be done. Between
zones 4 and 10 on the LIRR, one-way o-peak fares
are $7.50, with some o-peak one-way fares climbing
to $17.00 - $22.25. While these riders are traveling
further distances, these fares could be lowered to
encourage even more people to get onboard.
58
57 Metropolitan Transportation Authority (MTA), CityTicket,
Date accessed: February 9, 2021, https://new.mta.info/fares/
Cityticket.
58 Metropolitan Transportation Authority (MTA), LIRR and
Metro-North fares, Date accessed: September 23, 2020,
https://new.mta.info/fares/lirr-metro-north.
Phase II
Make Phase I Pilot Programs permanent and establish benchmarks for Phase II
permanence
28
Outer Borough Transportation Account (OBTA)
The Outer Borough Transportation Account (OBTA)
59
was created in 2018 as part of the New York City
Transportation Assistance Fund and came out of an
agreement reached when Central Business District
Tolling became law. Funds from this account are
to be used specically for MTA operating and
capital expenditures in Bronx, Kings, Queens and
Richmond counties and for any projects that improve
transportation connections from these counties
to New York County. The goal of this legislation
is to address inequities in communities that are
underserved by transit and includes a funding
mechanism that will support it. However, while the
merits of this legislation are pointing in the right
direction, the PCAC believes that the legislation is
outdated, especially when considering the impacts
of the COVID-19 pandemic, including that some
commuters may no longer purchase a monthly ticket
but rather may look for more exible options like
20-trip tickets to better accommodate hybrid work
schedules, and that the legislation does not go far
enough in providing real relief to outer borough
commuters. Furthermore, the PCAC believes that the
legislation should be expanded to include resources
for suburban commuters as well.
59 The New York State Senate, SECTION 1270-I: New York
City Transportation Assistance Fund, (April 27, 2018),
Date accessed: August 11, 2021, https://www.nysenate.gov/
legislation/laws/PBA/1270-I.
As is, the legislation calls for 20 percent discounts
for city LIRR monthly ticket holders, while MNR
city riders would receive only 10 percent discounts.
Comparing these proposed discounts to the current
Atlantic Ticket discounts, the dierence is clear. Plus,
Atlantic Ticket weeklies include transfers to subways
and buses so riders can complete their trips under
one discounted fare option. The PCAC believes the
OBTA funds would be more useful if applied to an
expanded Freedom Ticket concept.
The Freedom Ticket proposal is more overarching
and will attract more riders back to the system. As
commuting patterns are changing, riders will need
improved options that are more exible to reect
these commutes. Riders need their nearest transit
connection to be truly aordable and provide the
exibility that Freedom Ticket can oer. Otherwise,
many will still opt for cheaper subway and bus
fares, or driving, continuing to render their closest
commuter rail option unfeasible.
MONTHLY TICKETS
Commuter Railroad
Combined Fares
LIRR
(Zone 3 to Zone 1)
MNR
(City Stations to GCT)
OBTA
$234 $216
(LIRR)*
$188
24%
MetroCard
$127 $127
25%
(MNR)*
$194
$127 $127
Freedom Ticket
(Atlantic Ticket)
$361 $343 $314 $321 $240
(MNR)(LIRR)
Atlantic Ticket discounts are cheaper than OBTA + MetroCard by:
$60 weekly x 4 =
(LIRR)* = 20% discounts
(MNR)* = 10% discounts
Table 5: Outer Borough Transportation Account Discounts vs. Atlantic Ticket Discounts
29
Conclusion
The MTA faces signicant challenges as it addresses
the immediate and longer-term eects of the
pandemic, including by nding creative ways
to regain ridership and recoup revenue, while
addressing equity issues in transit. The MTA must
take a proactive approach by reinventing the way
it provides and charges for service to ensure that
riders in areas with the longest commutes and
fewest options have access to transit – especially on
the LIRR and MNR, which for many are nancially
inaccessible.
It is time for the MTA to re-envision its fare structure
to:
• Help regional riders and essential workers travel
more aordably and eciently.
• Fill empty commuter rail seats with fare-paying
riders.
• Support regional economic recovery eorts.
• Attract drivers out of their cars in time for
congestion pricing implementation, reducing
roadway congestion and CO2 emissions.
Crucial to achieving these goals are immediately
making improvements to the current Atlantic Ticket
Pilot Program and expanding the Freedom Ticket
concept to city commuter rail stations. These actions
must be followed by implementation of suburban
commuter discounts and making permanent the
Atlantic Ticket and its city expansion. Furthermore,
beyond the here and now, the PCAC recognizes how
Freedom Ticket expansion – coupled with system
expansions – will provide a more ecient and
connected regional transit system. The convergence
of the MTA’s major capital expansion projects
including East Side Access, Penn Station Access,
and Long Island’s Third Track, will add substantial
capacity that, when coupled with plans for sucient
service, will allow the Freedom Ticket concept to be
made available at all hours of the day. In addition,
motorists will have an attractive alternative to driving
once congestion pricing is nally implemented: that
alternative should be the region’s commuter rail
system.
Table 5: Outer Borough Transportation Account Discounts vs. Atlantic Ticket Discounts
Transforming not only the MTA’s organizational
structure but also its fare structure will be crucial
in this new paradigm – now is the time to act as
our region and country have pledged to “Build Back
Better.” The MTA has a unique opportunity to help
guide its ridership back by lowering commuter rail
fares – establishing the building blocks to a more
equitable future, while helping to restore good faith
among riders in this time of great need. Finding
creative ways to bring ridership back – and maintain
it for years to come – lies within the Freedom Ticket
concept, which is needed now, more than ever.
30
Appendix A: LIRR City Ridership
iiiiiiiiiiiiiiiiiiiiiAnalysis
Appendix B: Pre-Pandemic Metro-North
iiiiiiiiiiiiiiiiiiiiCity Ridership Analysis
With the Atlantic Ticket already in place for
Southeast Queens and Brooklyn residents, the PCAC
conducted an updated LIRR ridership analysis of
trips between Jamaica and Penn Station to determine
opportunities there. Our analysis, pre-COVID-19,
found that seat availability during peak hours
remained mostly insucient, while o-peak empty
seats were much more plentiful than during peak
hours. Our 2020 ridership analysis found substantial
seating availability at all hours of the day as a result
of the COVID-19 pandemic. The pre-COVID-19
analysis was compared to the 2020 ridership
analysis.
Methodology
• Available capacity was calculated using LIRR
weekday ridership counts.
• Peak and o-peak ridership data was analyzed
for all trains traveling between Penn Station and
Jamaica, and on the Port Washington Branch
between Penn Station and Little Neck.
• Since the Port Washington Branch does not run
through Jamaica, all Port Washington Branch
data is for the entire Branch – between Port
Washington and Penn Station in both directions.
• Trains stopping at and/or terminating at Kew
Gardens, Forest Hills, Woodside, Hunterspoint
Avenue, Long Island City, and Far Rockaway were
included in the ridership data analysis.
• Peak hours: 6-10 AM; 4-8 PM
The PCAC determined that trains with 25 percent
or less available capacity might not be able to
accommodate increased ridership from Freedom
Ticket – negatively impacting current LIRR riders
who have long distances to travel. Many of these
trains were mostly full and seats would be dicult to
nd. However, in 2020, no trains in service had 25
percent or fewer available seats – all trains had room
to accommodate additional passengers.
With the success of the Atlantic Ticket Pilot Program
on the LIRR, the PCAC believes it is time for the
concept to be implemented for city MNR riders as
well. Our pre-COVID-19 analysis found that seat
availability during peak hours was mostly insucient,
while empty seats were much more plentiful during
o-peak hours.
Methodology
• Available capacity was calculated using Grand
Central Terminal (GCT) weekday ridership
counts.
• Peak and o-peak ridership data was analyzed for
all trains traveling between the Bronx and GCT.
This analysis included Hudson, Harlem, and New
Haven Line trains.
• The maximum load point was used to determine
seating availability. The maximum load point is
simply a count of the most passengers carried at
any given time while enroute. The maximum load
point varies from train to train – using this count
ensured what the availability seating capacity was
while trains were at their fullest point.
• Peak hours: 6-10 AM; 4-8 PM
The PCAC determined that trains with 25 percent
or less available capacity might not be able to
accommodate increased ridership from Freedom
Ticket. Seats would be dicult to nd and with many
of the trains mostly full, MNR riders who have long
distances to travel would be negatively impacted.
31
MNR Hudson Line to Grand Central
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
87%
92%
97%
71% 71%
32%
22%
27%
73%
83%
74%
79%
78%
80%
78%
69%
71%
85%
78%
86%
89%
76%
Chart 1: 2019 Weekday % Empty Seats by Hour
During the AM peak, available seating on the Hudson
Line going into Grand Central had some capacity
constraints overall, with 40 percent of seats being
empty; ve of the fourteen peak hour trains had at
or under 25 percent empty seats. The ve trains in
question were spread throughout the morning peak;
however, there were no capacity constraints during
the 6 AM hour. During o-peak hours, available
capacity was at 79 percent total empty seats, with
no trains at or under the 25 percent empty seat
threshold.
Peak
Off-Peak
32
Grand Central to MNR Hudson Line
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
79%
92%
87%
86%
80%
78%
88% 88% 88%
86%
82%
65% 65%
30%
25%
31%
49%
63%
66%
71%
67%
Chart 2: 2019 Weekday % Empty Seats by Hour
During the PM peak, the Hudson Line going north
from Grand Central had some capacity constraints
with 34 percent of seats being empty – four of the
eleven peak hour trains had at or under 25 percent
empty seats. The four trains in question were spread
throughout all morning peak hours. During o-peak
hours, available capacity was at 79 percent total
empty seats, with no trains at or under the 25 percent
empty seat threshold.
33
MNR Harlem Line to Grand Central
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
82%
94%
69%
36%
34%
41%
64%
59%
75%
80%
71%
62%
69%
71%
50%
64%
74%
80%
79%
85%
8%
Chart 3: 2019 Weekday % Empty Seats by Hour
During the AM peak, available seating on the Harlem
Line going into Grand Central had some capacity
constraints, with 35 percent of seats being empty –
four of the ten peak hour trains had at or under 25
percent empty seats. The four trains in question were
spread throughout the morning peak, however, there
were minimal capacity constraints during the 7 AM
hour. During o-peak hours, available capacity was
at 70 percent total empty seats, with no trains at or
under the 25 percent empty seat threshold.
34
Grand Central to MNR Harlem Line
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
67%
87%
74%
64%
65%
77%
82%
77%
78%
75%
72%
66%
49%
39%
26%
58%
29%
40%
48%
49%
60%
Chart 4: 2019 Weekday % Empty Seats by Hour
During the PM peak, available seating on the Harlem
Line going outbound from Grand Central had some
capacity constraints with 38 percent total empty seats
– two of the eight peak hour trains were at or under
25 percent empty seats. The two trains in question
were during the 5 PM and 7 PM hours.
During o-peak hours, available capacity was at 67
percent total empty seats, with no trains at or under
the 25 percent empty seat threshold.
35
MNR New Haven Line to Grand Central
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
-10%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
78%
94%
97%
38%
27%
14%
10%
36%
58%
63%
58%
55%
58%
62%
57%
41%
70%
65%
72%
83%
86%
-3%
Chart 5: 2019 Weekday % Empty Seats by Hour
During the AM peak, available seating on the New
Haven Line going into Grand Central had severe
capacity constraints, with only 13 percent of all seats
being empty – seven of the nine peak trains were at
or under 25 percent empty seats.
During o-peak hours, available capacity was at 62
percent total empty seats, with four trains at or under
the 25 percent empty seat threshold.
36
Grand Central to MNR New Haven Line
12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 PM 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Empty Seats
71%
89%
76%
65%
52%
59%
69%
75%
68%
58%
61%
44%
27%
16%
20%
30%
18%
41%
62%
-1%
3%
Chart 6: 2019 Weekday % Empty Seats by Hour
During the PM peak, available seating on the New
Haven Line going outbound from Grand Central had
severe capacity constraints, with only 8 percent of
all seats being empty – seven of the eight peak trains
were at or under 25 percent empty seats.
During o-peak hours, available capacity was at 56
percent total empty seats, with three trains at or
under the 25 percent empty seat threshold.
37
Appendix C: LIRR Suburban Pre-Pandemic & 2020 Ridership Analysis;
iiiiiiiiiiiiiiiiiiii MNR Suburban Pre-Pandemic Ridership Analysis
In addition to conducting a New York City-centered
ridership analysis, the PCAC also analyzed suburban
ridership data for both LIRR and MNR to see
what fare adjustment opportunities exist based on
ridership capacity ndings. Due to data availability,
LIRR pre-pandemic and 2020 ridership analyses
were conducted and compared; MNR only had 2019
data available so a comparison to 2020 ridership
count data could not be conducted.
Methodology
• LIRR: Available capacity was calculated using
LIRR weekday ridership counts.
• LIRR: Peak and o-peak ridership data
was analyzed for all trains traveling between
Long Island and Jamaica, and along the Port
Washington Branch, in both directions.
• LIRR: Since the Port Washington Branch does
not run through Jamaica, all Port Washington
Branch data is for the entire Branch – between
Port Washington and Penn Station in both
directions.
• MNR: Peak and o-peak ridership data was
analyzed for all trains on the Hudson, Harlem,
and New Haven Lines traveling between the
northern suburbs and Grand Central Terminal,
using GCT weekday ridership counts. West of
Hudson MNR service in Rockland and Orange
counties was not included in the analysis due to
operational agreements with New Jersey Transit
and since Manhattan-bound riders have to make
connections to NJ Transit before entering the
city.
• MNR: The maximum load point was used to
determine seating availability. The maximum
load point is simply a count of the most
passengers carried at any given time while
enroute. The maximum load point varies from
train to train – using this count ensures what the
available seating capacity is while trains are at
their fullest point. Therefore, this data is the same
as the MNR City Ridership Analysis above, as the
peak load point covers the entirety of each line
(See Appendix B for ridership ndings).
• Peak hours: 6-10 AM; 4-8 PM
The PCAC determined that trains with 25 percent
or less available capacity might not be able to
accommodate increased ridership from Freedom
Ticket – negatively impacting current commuter
rail riders who have long distances to travel. Many
of these trains were mostly full and seats would
be dicult to nd. However, in 2020, no trains
in service had 25 percent or fewer available seats
– all trains had room to accommodate additional
passengers.
38
Appendix D: Fare Restructuring Lessons Learned
Boston: The Massachusetts Bay Transportation
Authority (MBTA) has embarked on a massive
initiative called “Fare Transformation.” The MBTA’s
goal is to provide system riders with a simpler way
to get to destinations faster. The Authority has taken
advantage of new fare payment technology to lower
CharlieTicket and cash fares to CharlieCard levels –
starting with the Fairmount Line Pilot Program.
60
From 2012 through 2016, ridership increased 183
percent from just 800 to over 2,200 weekday trips
– showing strong demand for the Fairmount Line.
61
For the pilot program, the Fairmount Line was
incorporated into Zone 1A, resulting in lower fares
and free transfers to the Red Line at South Station,
the Silver Line, and to local buses.
62
The fare changes
took eect on September 1, 2020, with additional
phases to follow.
63
Los Angeles: In the early 1980s, L.A. Metro enacted
Proposition A, which included funds to cut transit
fares from 85-to just 50- cents between 1982 and
1985. During that time, ridership increased over
39 percent, from 359 million to over 500 million
annual boardings. After 1985, when the 85-cent fare
resumed, ridership decreased and stayed stagnant for
years.
64
By the 1990s, many bus riders grew tired of poor bus
service, overcrowding, and increasing fares. In 1992,
the Bus Riders Union (BRU) was created. In 1994 a
coalition of groups, which included the BRU, brought
a class-action lawsuit against Metro and was awarded
a victory that produced a consent decree that allowed
for new bus purchases and decreased fares. From
1996 to 2007, L.A. Metro’s ridership
60 Massachusetts Bay Transportation Authority (MBTA), Fare
Transformation, Date accessed: February 4, 2021, https://
www.mbta.com/fares/fare-transformation.
61 The Boston Foundation, Increasing Ridership On The
Fairmount Line, (April 2017), Date accessed: February 4,
2021, https://www.tbf.org/-/media/tbforg/files/reports/
increasing-ridership-on-the-fairmount-line.pdf.
62 Massachusetts Bay Transportation Authority (MBTA),
Fairmount Line Weekday Service Pilot, Date accessed:
February 4, 2021, https:// www.mbta.com/projects/
fairmount-line-weekday-service-pilot.
63 Massachusetts Bay Transportation Authority (MBTA), Fare
Transformation, Date accessed: February 4, 2021, https://
www.mbta.com/fares/fare-transformation.
64 LA Metro - The Source, Farless transit: A Q&A om Metro's
study to eliminate fares, (September 11, 2020), Date accessed:
February 5, 2021, https://thesource.metro.net//2020/09/11/
fareless-transit-a-qa-on-metros-study-to-eliminate-fares/.
increased from 363 million passenger trips to over
495 million passenger trips. However, since the
consent decree expired in 2008, ridership has been
steadily decreasing.
65
Between 2015 and 2018, Metrolink in Southern
California experimented with commuter rail fare
reductions. In 2015, fares were reduced on the
Antelope Valley Line by 25 percent, and led to a 29
percent ridership increase. While revenues initially
decreased by 12 percent, after a year and a half the
program became revenue neutral. The agency had
factored in a total subsidy of $5.46 million but only
needed a $2 million subsidy that was discontinued
by July 2018 as enough collected fares rendered the
subsidy unecessary.
66 67
In December 2016, Metrolink reduced fares on
its Perris Valley Line by 25 percent, resulting
in ridership gains over 50 percent, signicantly
exceeding the 15 percent average rate of fare
reduction, producing a net positive revenue eect.
68
In July 2018, Metrolink reduced fares by 25 percent
on its San Bernardino Line, resulting in an 8 percent
ridership increase by August 2018, followed by a
10 percent increase in October compared to 2017.
The program is still underway and pre-COVID was
expected to be revenue neutral by 2022.
69
65 Zilliac, Chloe, Sierra, L.A.’s Transit Ridership Is Plummeting,
(November 12, 2019), Date accessed: February 5, 2021,
https://www.sierraclub.org/sierra/las-transit-ridership-
plummeting.
66 Los Angeles Metro, Antelope Valley Line Study Update:
North Los Angeles Transportation Coalition Meeting,
(July 22, 2019), Date accessed: February 5, 2021,
http://metrolink.granicus.com/DocumentViewer.
php?file=metrolink_3523eb9d73311fd96ec56797995b7976.
pdf&view=1.
67 Los Angeles Metro, Metrolink Antelope Valley Line
100% Fare Enforcement and 25% Fare Reduction Pilot
Programs, (March 30, 2016), Date accessed: February 5,
2021, http://metrolink.granicus.com/DocumentViewer.
php?file=metrolink_3f89639e956b376f32e4386a348c2be7.
pdf&view=1#page=14.
68 Metrolink, Metrolink Board of Directors Meeting,
(February 9, 2018), Date accessed: February 5, 2021,
https://metrolink.granicus.com/DocumentViewer.
php?file=metrolink_0beab70cabe1f07d9fc4ade3266bd178.
pdf&view=1#page=14.
69 Metrolink, Metrolink Board of Directors Meeting,
(November 9, 2018), Date accessed: February 5, 2021,
https://metrolink.granicus.com/DocumentViewer.
php?file=metrolink_0beab70cabe1f07d9fc4ade3266bd178.
pdf&view=1.
39
Appendix E: Outer Borough and Suburban Bus Connections
Improving city and suburban bus connections and
transfer abilities to both the LIRR and MNR will
be necessary to support successful railroad fare
reductions and attract more riders. In order to ll
empty seats on the railroads, bus connections and
transfers between these two modes must be improved
– allowing those who do not own cars and live further
away from the railroad to travel via local buses to the
train and encourage others to leave their cars at home
and use transit for all segments of their trips. This
would also help further reduce CO2 emissions.
With the exception of some Long Beach Bus services
70
and some of the MNR connecting services,
71
buses are
not scheduled to hold connections with trains or to
make specic timed train connections. This is in part
due to the diculty of coordinating more frequent
bus service with current commuter rail service, which
runs at varying headways. In fact, during the Queens
Bus Network Redesign community events and
through online input, many riders expressed the need
to improve scheduling between buses and trains.
72
Some commuter rail stations are not directly served
by bus service, preventing people who live further
than walking distance from using them if they don’t
own a car. For example, in Northeast Queens, both
the Auburndale and Douglaston LIRR stations
are not directly served by any bus routes.
73
In
addition, instead of taking riders from surrounding
communities to the railroads, routes on suburban
bus systems often run parallel to the railroads to
accommodate the large number of people who do not
70 City of Long Beach, Transportation Brochure, Date
accessed: August 10, 2021, https://www.longbeachny.
gov/vertical/sites/%7BC3C1054A-3D3A-41B3-8896-
814D00B86D2A%7D/uploads/1119-4013_City_of_Long_
Beach_TRANSPO_BROCHURE_UPDATED.pdf.
71 Metro-North Railroad, Hudson Rail Link Schedule, (April 12,
2021), Date accessed: August 10, 2021, https://new.mta.info/
sites/default/files/2019-08/367_19_Queens%20Bus%20
Network%20Redesign_LATEST.pdf#page=98.
72 Metropolitan Transportation Authority (MTA), Existing
Conditions Report: A Better Way Forward – Improving
Bus Travel in the World’s Borough, (August 30, 2019),
Date Accessed: August 10, 2021, https://new.mta.info/
sites/default/files/2019-08/367_19_Queens%20Bus%20
Network%20Redesign_LATEST.pdf#page=71.
73 Metropolitan Transportation Authority (MTA), Existing
Conditions Report: A Better Way Forward – Improving
Bus Travel in the World’s Borough, (August 30, 2019),
Date Accessed: August 10, 2021, http://web.archive.org/
web/20210302224015/https://nicev11.msfglobal.net/
Passenger-Information/FasterRide-(1).
use the railroads due to high fares and infrequent
service. In fact, most of the highest-ridership NICE
Bus routes – such as the N4, N22 and N24 – the most
frequent in the system, parallel the LIRR.
74
75
The last LIRR origin-destination survey, conducted
in 2012-14, found that only 6 percent of LIRR riders
from Queens and Brooklyn got to their train via bus
– the share for Nassau was 3 percent, and for Suolk
was 2 percent. This clearly illustrates that many more
riders could benet from improved bus connections
to these stations.
76
In MNR territory, similar issues exist. The Bee-Line’s
#1 bus parallels the Hudson Line, connecting to NYC
Transit’s 1 train at the Van Cortlandt Park – 242
nd
Street station. In addition, the Bee-Line’s #2 and #3
bus routes also parallel the Hudson Line, providing
service to and from Van Cortlandt Park station before
veering o and traveling further east to provide
service in Yonkers.
A 2019 study done by Westchester Bee-Line found
that these buses were packed. Bus ridership was
higher southbound in the AM and northbound in
the PM. The #1 bus corridor had 8,315 daily riders,
while the #2 bus corridor had 8,359 – making them
the second and third highest ranked bus routes in
Westchester County. These buses reach full capacity
despite frequent service, often causing passengers
to have to wait for the next bus. Twenty percent
of systemwide Bee-Line ridership transfers to the
subway. Service on the combined #1/2/3 bus corridor
runs extremely frequently – as often as every three
minutes during the peak. 3,879 riders boarded
northbound at 242
nd
, and 3,576 alighted southbound
on weekdays.
77
Clearly the demand is there, and more
options are needed. Providing better connected bus
74 Nassau Inter-County Express (NICE Bus), A Faster Ride:
Learn About The Benefits of Bus Stop Rebalancing, (2017),
Date accessed: August 10, 2021, https://nicev11.msfglobal.
net/Passenger-Information/FasterRide-(1).
75 Nassau Inter-County Express (NICE Bus), NICE Weekday
Peak System Map, Date Accessed: August 10, 2021, https://
www.nicebus.com/getattachment/Tools/Maps-and-
Schedules/PRINT_WEB-System-Map.pdf.aspx?lang=en-US.
76 Long Island Rail Road, LIRR 2012-2014 Origin and
Destination Report, (August 23, 2016), Date accessed: August
9, 2021, http://web.mta.info/mta/planning/data/2012_
LIRR_OD_Report_Volume_I_FINAL%2008232016.pdf.
77 Westchester County, Bee-Line Bus Operations Study: 242
nd
Street to Getty Square Corridor, (April 2019), Date accessed:
August 10, 2021, https://transportation.westchestergov.com/
images/stories/Planning/242studyfinal.pdf.
40
service to Hudson Line stations, coupled with fare
discounts, will give riders a more seamless and faster
commute, rather than taking slow buses to subway
connections in the Bronx. Instead of bus service
competing with commuter rail service, it would be
much more useful to have the two complement each
other and coordinate schedules.
The MTA and its hopefully newly-formed Freedom
Ticket Task Force should reach out to these suburban
bus operators to improve service coordination
and identify funding opportunities for both fare
reductions and transfers. Furthermore, Westchester
County is in the process of redesigning its bus
network, and this would be the perfect opportunity
for the MTA to coordinate with Bee-Line Bus for
better service.
UniTicket
In 1975, the UniTicket program was created to oer
discounts for riders who use both commuter railroads
and local bus services. UniTickets are add-ons
available with the purchase of monthly or weekly
tickets on the LIRR and MNR. They can be used to
transfer to a limited number of New York City Transit
bus routes in Queens and the Bronx, to NICE bus
and Long Beach bus, and to MNR connecting transit
services. However, the program is poorly advertised,
unaordable, and limited.
Similar to the Atlantic Ticket, UniTicket is not
available on eTix and is at the bottom of the MTA
website’s fare page with limited and incorrect
information – including no information on how to
purchase the ticket. UniTickets are available for MNR
to limited New York City Transit bus routes in the
Bronx and to several connecting services including
Hudson Rail Link; however, this information has
been omitted from the website.
UniTickets are unaordable. Tickets to NYC Transit
buses cost an additional $42.75 on top of regularly
priced monthly railroad tickets, and $11.25 more
on top of weekly tickets. NICE Bus UniTickets are
$54.75 and $13.25 for monthly and weekly tickets,
respectively – on top of pricy railroad fares.
78
78 Metropolitan Transportation Authority (MTA), LIRR and
Metro-North fares, Date accessed: August 9, 2021, https://
new.mta.info/fares/lirr-metro-north.
Over the years, both monthly and weekly UniTickets,
and one-trip joint discounted Metro-North-bus
tickets, which used to be available for Westchester
Bee-Line Bus, were discontinued.
To provide more aordable access between city
and suburban buses, the UniTicket program should
be revitalized with improved and more aordable
options. The MTA should integrate the UniTicket
program as part of the overall Freedom Ticket
discounts to help ensure riders have aordable
options at each end of their commuter rail trips.
41
Appendix F: Platform Lengths
Two-Car Platforms: MNR – Melrose and
Tremont.
Four-Car Platforms: MNR – Southbound
platform at Spuyten Duyvil; Marble Hill; University
Heights; Morris Heights; Williams Bridge;
Woodlawn; and Wakeeld.
LIRR – Murray Hill and Hollis.
Six-Car Platforms: LIRR - St. Albans and
Nostrand Avenue.
LIRR – Kew Gardens and Forest Hills (currently can
accommodate 6 cars with temporary platforms).
Eight-Car Platforms: MNR – Fordham and
Botanical Garden.
LIRR - Queens Village.
42
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47
Atlantic Ticket Tweets
49
50
PERMANENT CITIZENS
ADVISORY COMMITTEE TO THE MTA
