Why Can’t New York Get Rid of 2-Person Subway Crews?

Late last year, New York Gov. Kathy Hochul vetoed a bill that would have required two-person operating crews on New York City subways, despite heavy pressure from transit unions. While the veto looked like a win for fiscal sanity, two-person train crews—and needlessly expensive transit systems—are likely here for the foreseeable future.

The bill, which would have mandated both a driver and a conductor on each train, cleared the state Legislature somewhat unexpectedly last year. It was pushed by the Transport Workers Union (TWU) to permanently codify more union jobs into state law.

Most NYC subway lines already operate with two-person crews under the current labor contract between the TWU and the Metropolitan Transportation Authority. Hochul’s veto stopped two-person crews from spreading systemwide, and it theoretically left the door open for the topic to be renegotiated in future labor talks, rather than being cemented into state law.

NYC’s two-person system is a global outlier. An analysis from New York University’s Marron Institute of Urban Management found that just 6 percent of the world’s commuter rail lines use two-person crews, with most operating safely with a single driver for decades.

Although unions insist two-person crews are essential for safety, evidence suggests otherwise. The Manhattan Institute’s Adam Lehodey has documented that London, which uses one-person crews, operates one of the safest rail networks in the world. Research from the Association of American Railroads, which compared one-person trains in Europe to America’s multiperson freight train system, similarly found no evidence of a safety impact.

But, as TWU President John Samuelsen told The New York Times, “It doesn’t really matter to us what the data shows,” adding that a driver and a conductor make trips “visibly safer.”

The fight over crew size extends beyond New York. Under President Joe Biden, the Federal Railroad Administration enacted a rule mandating two-person crews for freight trains nationwide. While one might expect this rule to be repealed in a Republican administration, the GOP’s continued bear hug with organized labor has muddied the waters.

President Donald Trump’s Transportation Secretary Sean Duffy and FRA Administrator David Fink both voiced support for the Biden-era two-person crew rule during their confirmation hearings. During his time in the Senate, Vice President J.D. Vance co-sponsored—along with numerous other Republicans, including Sen. John Hawley (R–Mo.) and then-Sen. Marco Rubio (R–Fla.)—the Railway Safety Act, which would have legislatively mandated two-person freight crews.

The contradiction is especially stark in rail policy, as Trump recently fired numerous Surface Transportation Board members, presumably in an effort to greenlight railroad mergers—the type of pro-railroad stance that collides with the administration’s pro-union crew-size priors.

Beyond failing to improve safety, two-person crews are substantially more expensive. Switching to one-person crews would save the MTA $442 million a year. That money could fund real safety improvements, such as the installation of platform doors, which provide a physical barrier between passengers and the train until the train has come to a complete stop. After platform doors were installed in Seoul, South Korea, annual subway deaths dropped from 70 to two.

If anything, Hochul’s veto merely gives new NYC Mayor Zohran Mamdani more flexibility in future labor negotiations between the TWU and the MTA. Based on the mayor’s track record, it’s unlikely he’ll be a voice for one-person crews.

Given likely political support from both City Hall and the White House, two-person crews appear entrenched—and riders will keep paying for them.