Commuter Rail: Most Systems Struggling to Recover Ridership Following the COVID-19 Pandemic

Fast Facts

During the COVID-19 pandemic, many riders stopped using public transit. Commuter rail, an alternative to driving between suburbs and city centers, was hit particularly hard.

As of December 2024, a majority of the nation's 31 commuter rail systems were running at close to pre-pandemic levels. But most systems continued to face lower ridership and higher operating costs. Increases in federal funding since 2019 helped offset lower fare revenue.

Some commuter rail systems have tried to adapt, including by extending service hours. Some plan to seek other revenue sources—e.g., additional state or local funding—as COVID-19 relief funds run out.

Metrolink Rail Station at Union Station in Los Angeles, California

Highlights

What GAO Found

Commuter rail is a transit alternative to driving between suburban communities and city centers. Industry-wide data show that the nation's 31 commuter rail systems as a whole are providing service above pre-pandemic levels, but significant variation exists by system. GAO's analysis of data from the Department of Transportation (DOT) shows that service at 19 systems was near or above pre-pandemic levels from July through December 2024. However, service at five systems remains more than 25 percent below pre-pandemic levels, and service at the remaining seven systems varies between 8.5 and 23.7 percent below. DOT data also show that ridership for most systems continues to lag behind service levels, though substantial variation also exists. At six systems, ridership from July through December 2024 had recovered or nearly recovered from 2019 levels but were below 2019 levels for the remaining 25 systems. Officials from some of the 10 systems GAO interviewed identified ways they have adapted service to attract riders and better meet changing passenger needs. These adaptations include expanding operations beyond traditional commuting hours, offering free fares and flexible passes for certain passengers (e.g., youth passes), and strategically expanding and adapting service based on community needs and feedback.

Data from GAO's survey of commuter rail systems show that fare revenue from riders was 31 percent lower in fiscal year 2023 for all systems, compared to 2019. To help offset this reduction in fare revenue, commuter rail systems reported increases in the percentage of their total funding comprised of federal, local, or other sources. COVID-19 relief funding comprised a significant portion of the 2023 increase in federal funding (see figure). As of February 2025, officials from 15 of 22 systems that responded to GAO's request said they did not have any COVID-19 funding remaining.

Note: Other funding can include funding from fees paid to use existing track, sale of assets, parking fees, or other sources.

The vast majority of systems also reported increased operating costs in fiscal year 2023 compared to 2019, with a 28 percent increase in nominal operating costs across all systems. According to officials GAO interviewed and GAO's analysis, inflation contributed substantially to the increase in costs. Beyond inflation, officials also said that labor and material costs contributed to higher operating costs, which are affecting systems' ability to plan and implement projects necessary for future operations.

Why GAO Did This Study

Roughly 5 years after the start of the COVID-19 pandemic, transit agencies report that it has significantly affected how individuals use and prioritize public transit in their daily activities. Many rail systems historically operated to serve passengers riding to and from city centers. Commuter rail was particularly affected by the pandemic and related increased telework. In response to the pandemic, Congress provided over $69 billion in relief funding to the transit industry. The federal public health emergency ended in 2023.

GAO was asked to provide an update to its 2021 report on the status of commuter rail systems' operations and funding. This report examines how, since the COVID-19 pandemic, (1) commuter rail service and ridership have changed; and (2) funding sources and operating costs for these systems have changed.

GAO analyzed DOT service and ridership data from January 2019 through December 2024 for the nation's 31 commuter rail systems. GAO also collected and analyzed funding and cost data for these systems for fiscal year 2023 using a web survey and compared these data to fiscal year 2019 data.

GAO also reviewed relevant federal statutes and guidance and interviewed DOT officials, industry association representatives, and a nongeneralizable sample of 10 transit agencies operating commuter rail systems. These agencies were selected based on ridership levels and whether the agencies offered multiple transit modes, among other things.

For more information, contact Andrew Von Ah at vonaha@gao.gov.

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