The question becomes how critical is X and is there a close alternative. In this case I'd say for 95% of people yes driving is easily substituted by NYC's public transit options.
For many people, the thing being substituted for an alternative is not "transportation into Manhattan", but more broadly "engaging in commerce in Manhattan"
Im not sure this fits, they saw a much larger drop (18%) in heavy duty trucks entering the city, and a smaller drop (9%) in passenger cars. I am not sure the public transit options are close alternatives for heavy duty trucks.