Is Free Fare Public Transport Enough to Drive a Modal Shift?

Since the COVID-19 pandemic, Free Fare Public Transport (FFPT) has been widely discussed as a potential solution to boost public transport ridership and provide economic relief for vulnerable communities. As financial pressures continue globally, affordability, accessibility, and fairness in public transport are becoming key concerns for cities worldwide. However, while free fares may sound like an effective strategy, evidence suggests that they alone do not lead to a significant shift from private cars to public transport.

The Tallinn Experience: A Cautionary Tale

Tallinn, Estonia, is often cited as a leading example of FFPT, having implemented the scheme in 2013. However, nearly a decade later, data indicates that rather than increasing public transport usage, the share of trips taken by car actually rose from 42% to 48%. Instead of encouraging sustainable mobility, Tallinn’s experience highlights the limitations of relying solely on fare-free policies. To truly shift behaviour, a more holistic approach is needed—one that focuses on service quality, accessibility, and reliability.

The Role of Accessibility and Service Quality

Affordability is undeniably important, but it is not the primary factor influencing people’s transport choices. Research consistently demonstrates that improvements in service quality—such as reliability, frequency, and convenience—have a greater impact on ridership than fare reductions. Studies have found that public transport usage is one-third to two-thirds more responsive to service enhancements compared to changes in fares. Additionally, investments in service quality generate economic benefits that are four to five times greater than those achieved by focusing only on fare reductions.

The main reasons people opt out of public transport are not necessarily related to cost but rather to issues like long waiting times, unreliable services, overcrowding, and poorly designed routes. Addressing these concerns through targeted infrastructure investments and operational improvements is essential for making public transport a viable alternative to private cars.

Finding the Right Balance: Cost vs. Benefits

While FFPT can alleviate immediate financial burdens for passengers, it must be paired with adequate investment in transport infrastructure and service quality to ensure long-term success. Cities such as Luxembourg and Tallinn have experimented with universal fare-free systems, but results have been mixed. While they remove financial barriers, these schemes often fall short in tackling fundamental challenges like frequency, reliability, and network connectivity.

A more effective approach may be to implement targeted subsidies, ensuring affordability for those who need it most while maintaining financial resources to enhance service quality. Cities that integrate public transport policies with broader urban planning initiatives are more likely to achieve sustainable and inclusive mobility solutions.

Key Takeaways

• Affordability in public transport has become a pressing global issue, especially in the wake of economic crises.
• The experience of Tallinn demonstrates that FFPT alone does not guarantee modal shift or reduce car dependency.
• Research shows that improvements in service quality have a stronger influence on ridership than fare reductions.
• Targeted subsidies can be more effective than universal FFPT schemes in achieving equity and sustainability goals.
• Integrating public transport policies with broader urban development strategies is crucial for long-term success.

The Path Forward

While FFPT may appear to be a simple solution for increasing ridership, the long-term success of public transport systems depends on more than just eliminating fares. To create sustainable, efficient, and inclusive urban mobility, cities must prioritise investments in service quality, accessibility, and strategic funding. By learning from global case studies and focusing on holistic improvements, they can build resilient transport networks that truly serve their communities.

For further insights, check out my recent interview with Deutsche Welle – DW News Video: Mobility and the Economy on Land and Under the Sea (video extract below)