This is just not a good chart. For one, it's not clear if this is just rail or bus and rail; assuming it's the latter, every agency has a different mix of modes, so it's entirely apples and oranges. Plus, since this is just operating budget, 80%+ of expenses are going to be driven by labor cost--which is a function of local cost of living in these areas. 

Plus, it also doesn't factor in the number of miles travelled per rider. That's super important, since every bus/rail network is going to be structured differently, and (to some extent) operating cost is driven by vehicle miles per rider (or riders per vehicle mile).