Discussion and conclusion

Meeting the expected outcomes

As outlined above, the Scheme had a number of expected outcomes. Each of these are considered in turn below alongside the evaluation findings to determine the extent to which they have been met.

Reduction in carbon emissions

It was expected that the Scheme would result in an increase in bus usage (both for new and existing journeys), along with modal shift from car to bus and a reduction in car kilometres. This would, in turn, be expected to result in a reduction of carbon emissions.

While the evaluation findings did not consider carbon emissions directly, feedback from cardholders provided strong evidence of both an increase in bus use and a reduction in car (and taxi) usage. Cardholders reported travelling by bus more frequently for both essential and existing journeys, as well as for new journeys. Conversely, many indicated that they travelled by car less often. Even where cardholders still had access to private vehicles, it was evident that many opted to use the bus due to cost, convenience and to reduce stress compared to driving.

Improved health, mental health and wellbeing

A key aim of the Scheme was to improve the physical health, mental health and wellbeing of older and disabled people. Cardholders overwhelmingly agreed that the Scheme supported this aim, at least where access to high quality, reliable and frequent bus services was provided.

Improved confidence, freedom and independence: Many reported that the Scheme gave them more freedom and independence. They indicated that it ensured they could travel as and when they needed to, and removed the feeling of being a burden to others, either financially or practically. Many noted that they had travelled further afield, to places and areas they would not have gone to otherwise, with some exploring across Scotland. Similarly, many highlighted improvements in their confidence for travelling. Cardholders were less nervous to travel due to the removal of cost barriers. There was also evidence that the companion card supported disabled children and young people to become more confident and independent in their travel as they got older.

Reduction in social isolation: There was strong evidence that the Scheme helped to reduce social isolation among cardholders. Many suggested that they made trips they would not otherwise have made, and indicated that they would not get out as often if they did not have their NEC. Many used the Scheme to allow them to socialise and to see family and friends. Even where the purpose of the journey was not a social activity, some also noted that they would meet and speak to other passengers on board the bus. This social aspect of the Scheme was considered important in combating loneliness and isolation for some cardholders.

There was also evidence of more direct positive impacts on people’s mental health, with a few cardholders highlighting how the Scheme had helped them to get out and join clubs following bereavements and disability diagnoses. This allowed them to access support, to connect with other people, and to build their confidence of travelling in their new/changing situation. The free bus travel provided by the Scheme removed a barrier or ‘excuse’ not to go out.

Increased activity levels (walking more/more active travel): There was mixed feedback regarding the impact on physical activity. Many survey respondents felt there had been little change in how much they walked, while there was also evidence that some walked less and others walked more. However, many also said they were more active because of the Scheme, and there was evidence that some used free bus travel to support active pursuits, such as going to the gym, to take part in sports, accessing parks or the countryside for walks, etc.

Reducing inequalities

Reduction in travel costs/reduced household spend on transport: Most survey respondents indicated that the Scheme had saved them money, and many said they would choose to take the bus because it was free. While the amounts saved varied, most cardholders were appreciative of the fact the Scheme allowed free bus travel. Respondents noted that the free nature of the card meant that the financial barrier to travel had been removed. A few respondents, typically on fixed/low incomes also suggested that reducing travel costs/spend also helped them manage their household finances, helping them to better afford other essentials.

Access to services, including health: One of the main uses of the Scheme was to access services, including shopping and personal business, health and medical services. For many, the Scheme was a vital resource to allow them to make these journeys. Without free bus travel, several noted that they would not be able to attend medical appointments, would either shop less often and have to carry heavier bags home, or would have to rely more on online deliveries. Taxis would also be used more, incurring higher costs.

Access to social and leisure activities: Another key use of the Scheme was for social and leisure activities. Many used free bus travel to socialise, either travelling with friends and family or to meet them, while several also used it to support hobbies or to attend sports activities/clubs. A wide range of different social and leisure activities were accessed. Some survey and focus group respondents also noted that they used the Scheme to travel significant distances to stay in touch with/meet friends and family, which they would not do otherwise.

Increase in domestic tourism (day trips and holidays): There was evidence that the Scheme was used to participate in domestic tourism, including day trips, weekends away and longer holidays around Scotland. The ability to use the NEC on long-distance services and multiple modes (e.g. ferries and trains, where applicable) was welcomed, as this allowed cardholders to travel further afield.

Access to education, work and volunteering: There was evidence that the Scheme had improved access to work, volunteering and education for some cardholders. There were reports of cardholders finding new jobs, accessing part-time work, staying in work longer, accessing and maintaining volunteering opportunities, accessing university, and parents/grandparents being able to take children to school because of the Scheme.

Feeling safe using the bus: The evaluation provided mixed results with regard to whether cardholders felt safe using the bus. While most indicated that they did feel safe travelling by bus, there were also some that discussed feeling unsafe due to anti-social behaviour and the number of Young Persons’ Scheme cardholders now using buses. Issues around feeling unsafe at bus stops or interchanges that were poorly maintained or poorly lit were also reported in some cases.

Other findings linked to inequalities: While there was little difference in the journey purposes between those who travelled using their NEC, and those who travelled using different modes, there was however, a difference in how frequently these two groups travelled for their main journey purpose. Those who used other modes tended to travel slightly more frequently compared to those who used their NEC. However, many cardholders said that the card allowed and encouraged them to travel more often than they would do without it.

Also, it would appear that proportionately fewer people in more deprived areas hold the over 60 card compared to those in less deprived areas. As such, the benefits may not be achieved equitably.

Conclusion

Overall, the evaluation suggests that the Scheme is highly successful and valued. The results show that the Scheme is largely meeting each of the objectives, driving modal shift and contributing to a reduction in carbon emissions, improving physical health, mental health and wellbeing for cardholders, and tackling inequalities. In general, it operates smoothly for both bus operators and cardholders, although a few areas were flagged to deliver direct improvements to the Scheme. The findings show that the Scheme is well used, with most survey respondents using it with some regularity. It is also used for a wide range of purposes and provides a variety of benefits, including those directly felt by cardholders, as well as for the environment, communities and the economy.

There were differences in some results, largely by card type and the extent to which households were experiencing financial difficulties or not. In particular, disabled cardholders found it more difficult to get information about the Scheme, and the application and renewal process was more difficult for this group. Disabled cardholders were more likely to experience difficulties with physical access to buses, and were more concerned about safety and anti-social behaviour. However, they also appeared to experience the benefits to a greater extent, for example saving larger amounts of money, improvements in access to services, and improvements across the health and wellbeing measures.

The Scheme was described as excellent by those who use it, and as a ‘life-line’ for many. However, for those with no access to services, or where services did not run when or as often as needed, where direct routes were lacking or services were unreliable or slow, or presented accessibility challenges, the value of the Scheme was severely diminished. Better service provision and more accessible services would be needed in some areas, or expansion of the Scheme to support wider travel options (such as discounts on taxis, the inclusion of S19 door-to-door community transport services, etc.), in order to ensure greater equity in older and disabled people’s ability to access, use and benefit from the Scheme.