Unintended consequences & suggested improvements

Unintended Consequences and Other Issues

The Young Persons’ Free Bus Travel Scheme set out to deliver against a number of short and long term outcomes. However, it was anticipated there might be some unintended consequences as a result of introducing a universal policy. This section highlights some of these issues.

Change in Travel Patterns/Mode Choice

As outlined in Chapter 3, there appear to be early signs of changes in mode choice, with young people opting to use the bus rather than car, train and potentially some active modes. A few focus group respondents also indicated that they were opting to use the bus for short journeys where they would have previously walked as a result of the Young Persons’ Free Bus Travel Scheme:

“Because it [was] £2 a ride, and the ride is only 10-15 minutes from where I live in [city], I would probably just have walked [before using the scheme] because £2 for 15 minutes is quite a lot, and then if I travel quite a lot that’s £4 a day.” (Scheme User)

“I live in the city centre…and I use it quite often for short trips if it’s a bit quicker than walking.” (Scheme User)

Differences in Access to the Scheme/Benefits

It was indicated that differences in bus service provision meant that some young people benefited from the scheme to a greater extent than others, while some had very little opportunity to use the scheme or obtain the benefits offered. Challenges in accessing bus services (and therefore the scheme benefits) were identified for island communities where bus services were limited or did not offer sufficient choice in destinations, and because ferry travel was not included within the scheme; in rural areas with limited service provision; and also other areas, where limited services in the evening and at weekends was highlighted as an issue:

“When our sons are on the Scottish mainland they can access a range of university opportunities, live sports, music events, etc. But without free ferry travel… these opportunities cannot be accessed by students, particularly those who are accessing their courses at local education establishment[s] on the island.” (Follow-up survey)

“I’m a bit disappointed that I can’t use the bus pass more often with my daughter, but it’s not because of the scheme, it’s because the services aren’t suitable.” (Parent/Carer of Scheme User)

“The limited bus service probably doesn’t always make it practical for my son to travel with his card - the times might not always suit what he actually needs to do. The bus service has also been reduced so there is a limited service, but he does still try to use it when he can.” (Parent/Carer of Scheme User)

A reduction in services was also highlighted as a barrier to use and created unequal access to the scheme and its benefits as a result:

“It’s very frustrating that young people in Edinburgh can travel all over Scotland for free, when there’s a threat that our village bus service might be cut so the young people here can’t travel a few miles to our local town… never mind our closest city.” (Follow-up survey respondent)

“They’ve just announced they’re stopping all Sunday buses from the [main] town further into the [rural hinterland/surrounding area], so there’s going to be even less ability for people to use public transport.” (Parent of Eligible Non-User)

While results outlined in earlier chapters suggest that having access to the Young Persons’ Free Bus Travel Scheme provided benefits in relation to cost savings, independence, access to services and opportunities, and was generally positive in terms of mental health and wellbeing, there were concerns over the impact on those young people who struggled to make use of the scheme due to a lack of bus services. It was felt this impacted these young people’s independence, social skills and mental health. It was also suggested that the threat of, or move towards, reduced and removed bus services was incompatible with other policy directives:

“With no buses there’s no way for her to go and have that independence [in relation to socialising with friends] and I feel that could potentially have a longer term impact on social skills and mental health issues. Our local council’s constantly talking about how they want to improve mental health and reduce isolation and improve employability, but at the same time they are taking away our bus services, and it’s counter-intuitive to me as it’s taking away the ability for young people to have that independence, connectivity and improve their mental health and socialisation.” (Parent of an Eligible Non-User)

Further, a lack of opportunities more generally was identified as an issue in some areas, particularly remote, rural and island locations. This was felt to limit the use of the Young Persons’ Free Bus Travel Scheme as there was little to encourage additional travel.

Busier Services and Capacity Issues

Qualitative feedback from focus groups also suggests that capacity issues were proving problematic for some other bus users. This was an issue for particular routes at peak times, often corresponding with the start/end of the school day:

“It was always busy if you were unfortunate enough to travel at school coming out times before the scheme was introduced, but since the scheme was introduced it has increased many fold and it’s a bit of a ‘bun fight’ as to who gets on the bus and who doesn’t when you’ve got 30 kids all trying to get on… there was a problem before the scheme was introduced but this has made it a lot worse.” (Other Bus User)

A few focus group respondents (who were ineligible for the scheme) also suggested that the introduction of the scheme had changed their travel behaviour and made them avoid using particularly busy services:

“I pick up my children on my way to and from [work] sometimes and I have to use the bus… so sometimes we’ll get off a couple of stops earlier knowing that it’s going to be much busier and we’ll walk the rest of the way… it’s more comfortable for everyone to just walk to the next couple of stops so that we can actually get around a bit easier and we’re not crammed in this really packed bus. Or we sometimes take a different mode of transport altogether… That particular route is really busy so it has made me change how I travel, especially with my children.” (Other Bus User)

“My wife and I do avoid the coming out of the school period. We actively avoid it… we’d try to travel before or after.” (Other Bus User)

Negative impacts were not just noted by older respondents, it was also felt that busy services, combined with anti-social behaviour, was off-putting for young people as well. Parents/carers and young people themselves noted this could contribute to a lack of use of the Young Persons’ Free Bus Travel Scheme or the need for avoidance techniques:

“For my son specifically, I think he would be nervous… The buses tend to be really busy, we also have observed anti-social behaviour, people drinking, and… I think he would feel a little bit overwhelmed and worried about being on his own.” (Parent of Eligible Non-User)

“I have been waiting on a bus and avoided getting on it because there was someone who’d came up to the bus stop and was just harassing other people there. I decided rather than waiting for the bus to just start walking so that I could avoid having to interact with them.” (Scheme User)

A few focus group respondents, however, suggested that the Young Persons’ Free Bus Travel Scheme and the uptake in bus use had supported the post-Covid-19 recovery and sustainability of bus services:

“Increased demand does give me confidence over the sustainability [of bus services].” (Other Bus User)

Welfare Concerns

A few respondents across both the follow-up survey and focus groups highlighted welfare concerns. This included the potential for children and young people to travel very far from home without their parents/carers knowing, making it easier for young people to meet others they don’t know/meet online, and introduced the potential for young people to get lost as well as concerns about them becoming stranded in unfamiliar places (particularly if the card did not work or the last bus home did not turn up). A few respondents highlighted a desire for greater safeguarding restrictions to be placed on the scheme:

“History of running away/not coming home. Free bus travel allows ability to get further away.” (Follow-up survey)

“Concern that a young person with this card can decide to travel across Scotland. Why does someone in Aberdeenshire need the ability to travel by bus to Glasgow or Edinburgh? Would sign-up if the card was for local access.” (Follow-up survey)

“I do not want it used when she is not travelling with me because I do not feel that at her age that it is appropriate, particularly as she is a vulnerable young person, I don’t think that it is appropriate for her to have the ability to go where she wants when she wants… I would like to see additional restrictions put on there from a safeguarding point of view. I appreciate that’s not easy, but I think it’s making it easier for more children to become more vulnerable, particularly among the younger ones.” (Parent of Eligible Non-User)

Other parents of younger children also said that they would welcome some way of being able to track their child’s use on different buses to know where they were and in case they went missing, etc.

Conversely, people living in rural and island communities felt that their children would be safer travelling locally compared to the mainland. Although there was some anti-social behaviour in the smaller communities, parents felt that there was less risk of their children being exposed to anything more serious.

It should be noted that safeguarding guidance and training has been developed for bus drivers across Scotland. The training was developed by Barnardo’s Scotland and includes general safeguarding and the signs of exploitation, as well as reporting protocols for any concerns.

Difficulties Using the Young Persons’ NEC

A few follow-up survey respondents and several focus group participants also noted issues with the young persons’ card not working/scanning on-board the bus and an apparent lack of consistency in the policy/approach in how this should be handled. In some cases, parents and young people reported that bus drivers had been patient and helpful, allowing them to use the bus anyway:

“Sometimes it just doesn’t work. Like, when you go on the bus, it has a little green light that turns on, and sometimes it just doesn’t work, but it’s okay because the drivers see that I have it and just let me go anyway, so I’ve never had an issue with that.” (Scheme User)

Others, however, said drivers had insisted that the young person had to pay the fare, or they would not be allowed to travel. This, again, created welfare concerns, particularly for younger, female and disabled/ASN users, as well as being a source of anxiety, stress and embarrassment for young people:

“When the pass works it’s great but when it didn’t the bus driver removed it, was very rude, and then made her pay (not telling her the cheapest option) and wouldn't let her on if she didn't, which would have left a 13 year old girl stranded in another town on her own.” (Follow-up survey)

“One of the drivers didn’t let me in because my card didn’t work and there were people behind me and it made me feel really ashamed and embarrassed… Some of the bus drivers can be really not friendly enough.” (Scheme User)

Drivers being generally unhelpful, rude and intimidating to young people (which was also raised as an issue in the baseline survey), and not stopping at their stops, was also noted by several follow-up survey and focus group respondents:

“Quite a lot [of drivers] are mostly really nice, but some are just rude and stuff, and you’re just like ‘Why would I want to get on a bus when someone’s acting like that?’… a bad interaction can really put you off.” (Eligible Non-User)

“On too many occasions the bus driver has ignored them at the bus stop unless there have been other adults there. I did complain to [the operator] but it continues to happen. I have since witnessed it happen to other young people at bus stops and it concerns me as my daughter was left alone at night after a driver looked at her and drove on.” (Follow-up survey)

However, as noted in Chapter 6 Perceptions of and Issues with Bus Use, a few respondents, typically those living in rural and island areas noted that good relationships with drivers were fostered and it was felt that drivers were helpful and supportive of young people using their services.

Suggested Changes/Improvements

Expand the Scheme to More Services, Modes and Users

A few young people who participated in the focus groups indicated a desire for the Young Persons’ Free Bus Travel Scheme to be extended to include night bus services. A few eligible non-users indicated that such coverage would make the scheme more attractive:

“If there were more services available after midnight it would definitely be worth having more of a look at [signing up for the scheme] in case you’re ever stuck as there’s not really any other public transport on at that time, but it’s not like that just now.” (Eligible Non-User)

A few respondents across both the follow-up survey and focus groups also discussed the difficulties for those living in island communities being able to access opportunities due to the free travel not extending to ferries. They suggested that the Young Persons’ Free Bus Travel Scheme could realistically only be used on visits to the mainland, and that free ferry travel was needed for island residents:

“Live in [island community], majority of journeys have to be by car. Free pass used on mainland visits.” (Follow-up survey)

“There is no bus link between [island] and the Scottish mainland. Therefore, free ferry travel is required for students at university who are travelling [by ferry] to access these opportunities, particularly students that are studying locally.” (Follow-up survey)

There were also calls for the scheme to be extended to cover the rail network, and for all young people to be able to access free tram travel (not just Edinburgh residents):

“I think if we could have access to the trams in Edinburgh to, that would be good. I think children in Edinburgh with an Edinburgh postcode can go on the trams and I know that the older person’s card you can, so that would be nice if they could get on the trams as well that would be nice.” (Scheme User)

A few also suggested that the upper age restriction for eligibility should be raised (with up to age 26 being suggested), and/or that the scheme should be extended to all students/those still in education and training, regardless of age. Such an extension may also reduce the likelihood of young people losing access to opportunities and activities upon turning 22 and becoming ineligible for the scheme.

Greater Restrictions on Eligibility

Conversely, a few focus group participants, typically non-users who were ineligible for the Young Persons’ Free Bus Travel Scheme and parents of eligible non-users, argued that the scheme should be tightened up. This was generally considered necessary in order to better manage demand and capacity issues, as well as to address some of the safeguarding concerns and anti-social behaviour issues. Suggestions included:

• That the scheme should become means tested rather than a universal benefit;
• To reduce the eligibility criteria (e.g. only available up to the age of 18 unless a person is still in education, training or an apprenticeship);
• To have different products available for different age groups, such as free for children of primary school age only when accompanied by an adult;
• To allow local travel or travel within a pre-determined radius only; and/or
• To require card holders to pay a reduced fare rather than it being a free service (particularly for those aged 18+).

Policing the Use of the Scheme/Users Behaviour

A common theme among focus group participants was the perceived need to introduce some mechanism to police the use of the scheme and implement consequences for inappropriate behaviour. It was felt there was a need for greater partnership working between local authorities, bus operators, Police Scotland, and potentially schools. In practical terms, it was suggested that either time limits for the operation of the free bus travel could be helpful, particularly for younger users, and/or the potential to withdraw the Young Person’s NEC if anti-social behaviour occurred/persisted:

“I think it should be limited to say, young school children not able to use it after eight o’clock at night.” (Other Bus User)

“I notice that a lot of people who do behave in that kind of manner [anti-socially] do have a Young Scot card, so it would be good to have a penalty system to discourage them. They don’t see any penalty - they don’t pay for the bus, they just get kicked off and then they wait for the next one.” (Scheme User)

Application Process and Use of Technology

The application process was highlighted as a key area for improvement across all feedback methodologies. A range of suggestions were provided, including utilising some form of auto-enrolment to avoid the need for the application; greater use of parentsportal.scot for applications, including for secondary school pupils; and greater guidance and support for applicants to navigate the application process and documents required. It was also felt that replacement cards needed to be easier to obtain, including providing a facility for this via an/the App.

Several respondents also suggested there should be an electronic card or e-wallet available in order to provide an alternative option to scanning the physical card (although respondents were keen for this to be in addition to the physical card to circumvent any digital/IT issues/failures). Recognising there was already an App available to those aged 16+, one young person commented that they felt this should be extended to younger children:

“I think if we could access it digitally it would be better because… if you lose your card, you’d have a second option. So having a digital copy as well would be quite useful.” (Scheme User)

“A digital option would be handy, but also the card too in case your phone died. And maybe a way to have it on your digital wallet, like Apple Pay and stuff.” (Scheme User)

There was a sense that children viewed their phones as the most valuable and most important thing to look after and that they were less likely to lose a phone than a physical card:

“My kids don’t leave their house without the phone, and so I must wonder, is it integrated with anything like the Apple Wallet? That would certainly help, I think. Or maybe the keyring cards like you get from the supermarket loyalty schemes - they’re good too.” (Parent/Carer of Scheme User)

In addition, several respondents highlighted issues with bus tracking Apps. This included the apps not being accurate, and the lack of a single source of information, with different Apps required for different operators, different towns/cities and different local authority areas. It was felt there was a need for improved and connected real time information (RTI) in order to give both young people and their parents confidence in the scheme, and bus use more generally.

A few respondents also suggested that the card, and information contained on it needed to be more robust as they had experienced issues with the hologram or photo rubbing off. It was also suggested that the card could be integrated with the YOTI App, as an acceptable form of identification verification.   

Greater Information Made Available to Students

Finally, a few focus group respondents felt that the scheme was not well advertised to university students, with foreign students in particular often not aware of the scheme or how to apply. It was suggested that greater communication efforts and targeted advertising was necessary to boost uptake and ensure all eligible university students were aware of their entitlement.