Fuck Cars
A place to discuss problems of car centric infrastructure or how it hurts us all. Let's explore the bad world of Cars!
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I agree the graphic alone isn't super clear. I read it as the higher number being the potential capacity (such as in a particularly high-capacity system), and the lower number being the more typical capacity. Consider suburban rail, for instance. Some systems might have double-decker trains and more compact seating that allows for higher capacity, whereas some may have just single-decker trains. The double-decker system will have a higher capacity, whereas the single-decker might be more representative of what the "average" capacity of a suburban rail system might be, while the higher number might be more representative of the "potential" capacity of a suburban rail system when you really push it to its limit.