A buddy of mine owns a building and has, until recently, rented to Caltrans for about 20 years. Lucky him, they bought his building for him. He showed me some insight into the internal workings of this agency. There are basically 30 people who have to be copied with emails when it comes to changing a fluorescent light in the ceiling. He showed me the email chain. It was jaw-dropping how many man hours of work, and woman hours, went into the decision as to when to schedule a work man to come in and change two bad 4 foot fluorescent tube lamps in a fixture.
Just one? In Boston, years ago, a candidate ran radio ads complaining that it took three people to change a light bulb in MBTA system. Supervisor, guy to hold the ladder, and the guy doing the actually work.
If it was in a subway tunnel itself, I could see at least two people for safety reasons.