In 2020, as the world shut down to contain the spread of COVID-19, urban rail systems went from bustling hubs of movement to near-empty spaces. Ridership plummeted as lockdowns and movement restrictions kept people off trains and trams, marking one of the most dramatic declines in public transport history. Now, as the UNECE region emerges from the pandemic, a story of recovery is unfolding—though not all systems are on the same path.
Since 2019, UNECE has been collecting data on urban rail transport from 40 countries, offering a unique view of how these systems navigated and rebounded from pandemic challenges. In some cities, the decline was steep but temporary, while others have struggled to bring
For example, Madrid metro, one of Europe’s busiest, saw a 40% drop in passenger numbers between 2019 and 2020. Despite this dramatic decline, by 2023, the system fully recovered to pre-pandemic ridership levels. The Istanbul metro rebounded even more impressively, with its 2023 ridership surpassing 2018 levels by 30%, showcasing a swift and robust recovery.
One of the most remarkable comebacks occurred in Tashkent, where the metro system saw ridership soar by 150% above 2018 levels by 2023, making it a standout success in the region’s post-pandemic recovery.
The chart below shows the annual passenger numbers for select urban rail systems, highlighting both swift and gradual recoveries.
While passenger numbers offer a clear view of how many people are using public transport systems, passenger-kilometres provide an even deeper view of recovery, illustrating not just how many people are returning to public transport, but how far they are traveling.
In Baku, for example, the metro system stood out for the vast distances passengers travelled. In 2019, Baku’s metro served over 2.6 billion passenger-kilometres, a figure that dropped by over 70% in 2020. However, by 2023, Baku’s metro had more than recovered, slightly surpassing its pre-pandemic passenger-kilometre figures, reflecting a full recovery in system utilization. Budapest metro followed a similar trajectory, with a sharp decline in 2020 followed by a steady rebound. By 2023, Budapest had regained and exceeded its pre-pandemic passenger-kilometre figures, signalling a return to normalcy. Meanwhile, the Paris tram and Sofia metro experienced less dramatic drops but have shown steady growth, regaining lost ground by 2022.
The following chart tracks this metric across key cities.
For many major urban rail systems, the pandemic’s impact is still being felt. The Paris metro, once carrying over 1.5 billion passengers annually, saw ridership cut in half in 2020, with just 750 million passengers. Although the system has begun to recover, by 2023, it has yet to reach its former levels.
The situation in London was even more severe, with the city’s metro ridership plummeting by 80% compared to 2018 levels. Despite some improvement, London’s metro still operates well below pre-pandemic levels. Similarly, Berlin mixed transport system, which includes both metros and trams, experienced a more gradual decline but remains below its pre-pandemic ridership. In smaller systems like Prague and Stockholm, recovery has been slower and less pronounced, showing that larger and smaller cities alike are still grappling with the aftermath of the pandemic.
The way countries gather urban rail data is as diverse as the systems themselves. While many rely on traditional methods like ticket sales to track ridership, others have embraced more advanced technologies, such as on-board sensors and automatic fare collection systems, that offer real-time insights into passenger flows. However, this variety in data collection methods can sometimes pose challenges when comparing systems across different countries.
Despite these differences, UNECE ensures consistency by collecting data at the system level, allowing for meaningful comparisons across cities and regions. Two primary metrics are tracked: passenger numbers and passenger-kilometres. The latter provides a deeper understanding of system usage, calculated by multiplying the number of passengers by the average distance they travel. Some countries go a step further, using surveys to estimate journey lengths, offering more detailed insights into travel patterns.
As countries work toward achieving the United Nations Sustainable Development Goals, urban rail transport data has become essential for tracking progress on SDG 11 (Sustainable Cities and Communities). By monitoring urban rail ridership and utilization, we gain valuable insights into how cities are fostering accessible, sustainable, and resilient public transport systems.
For more detailed insights and to explore the data yourself, visit the Urban Rail Public Transport Data page at the United Nations Economic Commission for Europe.
United Nations Economic Commission for Europe
Sustainable Transport Division
Palais des Nations, Geneva