The Office of Rail and Road (ORR) has issued a series of recommendations aimed at overhauling how the UK rail industry handles revenue protection, following a government-commissioned review that found widespread inconsistencies and fairness concerns.
The ORR’s in-depth investigation revealed that passengers across the country face vastly different outcomes when travelling without a valid ticket—whether due to honest mistakes or deliberate fare evasion. The regulator is now urging the rail industry to adopt a more consistent, transparent, and passenger-focused approach.
Key Findings from the ORR Review:
- Inconsistent enforcement: Revenue protection varies significantly between train operators, leading to unequal treatment of passengers.
- Lack of clear information: Many passengers struggle to understand ticket conditions, permitted routes, and their rights if enforcement action is taken.
- Unfair treatment of honest mistakes: The current system often fails to distinguish between genuine errors and intentional fare evasion.
- Prosecution disparities: There is no standardised test for when prosecutions should proceed, raising concerns about proportionality and public interest.
- Need for better oversight: The industry lacks a central body to coordinate best practices and ensure transparency in revenue protection.
Director of Strategy, Policy and Reform at the ORR, Stephanie Tobyn, said:
"Effective revenue protection is essential for a sustainable railway, but it must be fair and proportionate for passengers. Our recommendations aim to protect both industry revenue and support passenger confidence.
“Our evidence shows a system that has evolved over time where the legal framework and enforcement processes are increasingly complex and appear weighted towards industry, leaving some passengers who make innocent errors vulnerable to disproportionate outcomes. But meanwhile, fare evasion remains a significant problem, and rigorous action should be taken against those who intentionally seek to defraud the railway.”
ORR’s Five Key Recommendations:
- Simplify ticket purchasing: Make it easier for passengers to buy the correct ticket by providing clearer information on restrictions and conditions.
- Ensure fair treatment: Standardise how passengers are treated when ticket issues arise, focusing enforcement on deliberate fare evasion.
- Standardise prosecutions: Introduce a consistent test for prosecution across all operators to ensure fairness and proportionality.
- Improve passenger information: Clearly explain rights, penalties, appeals, and enforcement processes.
- Create a central oversight body: Promote best practice and transparency across the industry.
Fare evasion costs the UK rail network hundreds of millions of pounds annually. While operators have increased enforcement efforts, the ORR warns that safeguards to protect passengers have not kept pace.
The Department for Transport and Transport Secretary will now consider the recommendations. The ORR has pledged continued support to help implement reforms that benefit passengers, operators, and taxpayers alike.
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