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$228m without a metre of track, now Auckland Light Rail disestablishment to cost millions more
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This is way out of date but its talking about cities in Europe that both have, and don't have underground systems.
https://www.skyscrapercity.com/threads/misc-largest-cities-without-metro-subway-and-smallest-cities-with-it.404033/
Back then Belgrade was guessed at being the largest without an underground, but they note small cities like Lausanne, 130k center, but including wider population 320k were getting a subway. Or Rennes which had a wider population of 550k at the time and had a subway system. Now, they're not digging on a volcanic field so perhaps it was easy to do, but in terms of Europe, 1.6m without an underground system of some kind is a slight aberration.
Of course, there's cities in Asia where there's 10+ million without an underground either so on pure population its not unusual at all :)