Concessionary travel statistics: year ending March 2023
Published 30 November 2023
Applies to England
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This publication is available at https://www.gov.uk/government/statistics/concessionary-travel-statistics-year-ending-march-2023/concessionary-travel-statistics-year-ending-march-2023
About this release
This release presents statistics on concessionary travel in England, which are based on survey data collected from Travel Concession Authorities (TCAs). Concessionary travel relates to when eligible people travel on reduced (or free) fares.
These statistics cover:
- older and disabled concessionary passes
- concessionary bus journeys
- payments made by TCAs to reimburse operators
- financial breakdowns for operating concessionary schemes
These statistics are summarised for 3 key area types, London, metropolitan (met) areas, and non-metropolitan (non-met) areas.
More details on the journeys and individuals that fall within the scope of concessionary travel, as well as the definitions used in this release, are provided in the definitions section, with additional information provided on the guidance page.
Headline figures
In England, comparing the year ending March 2023 with the year ending March 2022, there were:
- 8.7 million older and disabled concessionary travel passes, no change
- 567 million concessionary bus journeys, up 15%
- £715 million reimbursed to bus operators by TCAs, down 17% (constant prices)
- £877 million in net current expenditure on concessionary travel, down 19% (constant prices)
This release includes new data covering the year ending March 2020. The original data collection was optional to reduce the burden on TCAs during the coronavirus (COVID-19) pandemic.
Concessionary bus journey figures for London for the year ending March 2022 were revised from 229 million to 169 million as the original figure used the incorrect time period.
These statistics have always been revised each year to use any new information, in order to be as accurate as possible. These revisions are usually minor and do not affect the overall narrative of these statistics.
Older and disabled concessionary passes
The number of concessionary passes is typically sourced from administrative databases. Whilst this provides a reasonable proxy for the number of pass holders, they will include inactive passes, those issued to people who are deceased, and those who no longer live in the area.
There were 8.7 million older and disabled concessionary passes in England in the year ending March 2023, broadly similar to the year ending March 2022.
Across England, this figure breaks down as:
- 1.1 million in London, up 2%
- 2 million in metropolitan areas, up 1%
- 5.6 million in non-metropolitan areas, down 1%
The majority of these concessionary passes in England were for older people (90%) rather than disabled people (10%). The proportion varies slightly by area type.
Chart 1: Older and disabled concessionary passes by area status, England, year ending March 2011 to 2023 (BUS08a)
Year-on-year changes in the number of concessionary passes should be treated with caution.
Older and disabled concessionary passes in England peaked in the year ending March 2016 at 9.9 million and have been slowly decreasing ever since (Chart 1).
Since the year ending March 2011, older and disabled concessionary passes (Chart 1) have:
- remained broadly stable in London, down 1%
- decreased by 11% in metropolitan areas
- decreased by 9% in non-metropolitan areas
Concessionary bus journeys
There were 567 million concessionary bus journeys in England in the year ending March 2023, an increase of 15% compared with the year ending March 2022.
Across England, this figure breaks down as:
- 198 million in London, up 17%
- 141 million in metropolitan areas, up 9%
- 228 million in non-metropolitan areas, up 18%
Chart 2: Concessionary bus journeys by area status, England, year ending March 2011 to 2023 (BUS08a)
Revision: Concessionary bus journey figures for London for the year ending March 2022 were revised from 229 million to 169 million as the original figure used the incorrect time period.
These figures are broadly in line with trends seen in the annual bus statistics for overall bus journeys.
Concessionary bus journeys in England peaked in the year ending March 2012 at 1,054 million and have been slowly decreasing ever since. In the year ending March 2021, journeys were affected by the coronavirus pandemic, dropping by 66% to the lowest ever recorded figure of 272 million. In the year ending March 2023, journeys recovered to 70% of pre-pandemic levels (the year ending March 2020) (Chart 2).
Since the year ending March 2011, concessionary bus journeys in each area type have broadly followed the England trend (Chart 2). In the year ending March 2023, recovery after the coronavirus pandemic varied slightly by area type, with:
- London reaching 79% of pre-pandemic levels
- metropolitan areas reaching 67% of pre-pandemic levels
- non-metropolitan areas reaching 67% of pre-pandemic levels
Concessionary bus journeys per pass
An average of 64.9 concessionary bus journeys were made per statutory pass in England for the year ending March 2023, an increase of 17% compared with the year ending March 2022.
The number of journeys per pass is typically much higher in London than other areas. For the year ending March 2023, there were 173 journeys per pass in London, compared to 71.6 in metropolitan areas and 40.7 in non-metropolitan areas.
Chart 3: Concessionary bus journeys per statutory pass by area status, England, year ending March 2011 to 2023 (BUS08a)
Concessionary bus journeys per statutory pass in England peaked in the year ending March 2011 at 110 journeys per pass and have been slowly decreasing ever since (Chart 3). In the year ending March 2021, journeys per pass were affected by the coronavirus pandemic, dropping by 66% to the lowest ever recorded figure of 30. In the year ending March 2023, journeys per pass recovered to 74% of pre-pandemic levels (the year ending March 2020).
Since the year ending March 2011, concessionary bus journeys per statutory pass in each area type have broadly followed the England trend (Chart 3). In the year ending March 2023, recovery after the coronavirus pandemic varied slightly by area type, with:
- London reaching 78% of pre-pandemic levels
- metropolitan areas reaching 67% of pre-pandemic levels
- non-metropolitan areas reaching 71% of pre-pandemic levels
Expenditure on concessionary travel
Net current expenditure is the amount of money spent by TCAs on running the concessionary travel scheme in their area. This covers both the statutory and discretionary elements (if offered by the TCA), including:
- reimbursement to bus operators
- administration
- pass production costs
- employee costs
There is more than one source available for figures on concessionary travel spending. The statistics presented here are based on the Concessionary Travel survey for consistency with other figures, such as reimbursement of bus operators.
Similar data are collected by the Department for Levelling Up, Housing and Communities (DLUHC) as part of their revenue outturn data. The DLUHC data for concessionary travel reimbursement are presented in the BUS05 data collection.
In the year ending March 2023, net current expenditure on concessionary travel by TCAs was £877 million.
Across England, this figure breaks down as:
- £206 million in London (24% of total)
- £275 million in metropolitan areas (31% of total)
- £395 million in non-metropolitan areas (45% of total)
Chart 4: Net current expenditure (at 2023 prices) on concessionary bus travel by area status, England, year ending March 2011 to 2023 (BUS08dii)
Reimbursement from London Councils to Transport for London (TfL) is calculated from journeys taken in earlier years. The latest figure is based on journeys during the coronavirus pandemic.
Net current expenditure on concessionary bus travel in England (adjusted for inflation) has been decreasing since the year ending March 2011, declining by 40% since then (Chart 4). This is a comparable change to concessionary bus journeys, which declined 46% over the same period.
Net current expenditure in metropolitan areas and non-metropolitan areas has steadily declined since the year ending March 2011 (Chart 4). However, net current expenditure in London increased from the year ending March 2011 to the year ending March 2016, and then started to steadily decline.
At the start of the coronavirus pandemic, DfT urged TCAs to continue to pay concessionary travel reimbursement payments to bus operators at pre-pandemic levels. However, they could not mandate that TCAs reimburse at a rate higher than due. This has meant that spending since April 2020 does not reflect the reduced number of concessionary journeys.
Combined with funding from DfT, this support worked towards ensuring the continued operation of local bus services across the country during this period.
In the year ending March 2023, 79% of net current expenditure was spent on statutory concessionary schemes, which must be provided by TCAs. This proportion has remained broadly stable over the past decade and was unaffected by the coronavirus pandemic. Non-metropolitan areas consistently have a much higher proportion. For each area type, this proportion becomes:
- 68% for London
- 65% for metropolitan areas
- 94% for non-metropolitan areas
Reimbursement to bus operators
The net current expenditure is distributed across various elements of concessionary travel in England, with the most spent on reimbursing bus operators.
Reimbursement must be calculated by TCAs and is not straightforward. The base principle is that bus operators should be no better and no worse off from the concessionary scheme.
This legal requirement was temporarily relaxed during the coronavirus pandemic to allow TCAs to continue to reimburse at higher levels than would otherwise be due.
In the year ending March 2023, reimbursement to bus operators accounted for 82% of net current expenditure by TCAs on concessionary travel, or £715 million.
By area type, this proportion becomes:
- 69% for London
- 73% for metropolitan areas
- 94% for non-metropolitan areas
Chart 5: Concessionary reimbursement (at 2023 prices) by area status, England, year ending March 2011 to 2023 (BUS08dii)
Reimbursement from London Councils to Transport for London (TfL) is calculated from journeys taken in earlier years. The latest figure is based on journeys during the coronavirus pandemic.
Reimbursement to bus operators in England (adjusted for inflation) has been decreasing since the year ending March 2011, declining by 40% since then (Chart 5). This is a comparable change to concessionary bus journeys, which declined 46% over the same period.
Reimbursement in metropolitan areas and non-metropolitan areas have steadily declined since the year ending March 2011 (Chart 5). However, reimbursement in London increased from the year ending March 2011 to the year ending March 2015, and then started to steadily decline.
Discretionary concessions outside London
Since the year ending March 2011, almost all TCAs outside London have offered some discretionary travel concession, although the offering can change over time.
Table 1: Top 6 discretionary concessions offered by TCAs, England outside of London, year ending March 2024, (BUS08P02)
| Discretionary concession | Number of TCAs | Proportion of TCAs (%) |
|---|---|---|
| Extensions to the beginning of the statutory time period (9:30am) during weekdays | 66 | 79% |
| Companions to disabled people | 53 | 63% |
| Extensions to the end of the statutory time period (11:00pm) during weekdays | 52 | 62% |
| Allowing the use of discretionary companion passes issued by other TCAs | 37 | 44% |
| On-demand transport services (Dial-a-Ride) | 37 | 44% |
| Park and Ride services | 32 | 38% |
Some of the concessions offered are very specific to the TCA, such as those for light rail services or ferries.
Young people
Discretionary concessions for young people can be offered by TCAs directly or by bus operators on a commercial basis.
In the year ending March 2024, youth concessions are offered by 20 out of 84 TCAs in England outside London. A youth concession is offered by at least one commercial bus operator in 71 out of 84 TCAs in England outside London.
Definitions
Statutory concessions
In England, there is a statutory concession called the English National Concessionary Travel Scheme (ENCTS). An ENCTS pass allows eligible disabled people and those of state pension age, at a minimum, to travel for free on local bus services anywhere in England, between 9:30am and 11:00pm during weekdays and anytime at weekends and bank holidays. The scheme is administered by Travel Concession Authorities (TCAs).
In London, there is a statutory concession called the Freedom Pass, which covers the whole London Local Transport Network.
Since April 2010, the eligibility age for everyone has been tied to the State Pension age for women. The pensionable age for women reached 65 in 2018 and increased to 66 for both men and women from 2020.
Discretionary concessions
Some TCAs choose to offer residents discretionary concessions over and above the statutory scheme to eligible groups. These can include reduced (or free) fares:
- outside the statutory time period
- for companions of disabled pass holders
- for young people or other targeted groups
- on transport modes other than buses, such as trams or light rail
Data are not available from this survey on:
- concessionary journeys on other transport modes
- reimbursement to operators running concessions on other transport modes
In London, the statutory concession already covers off-peak travel on the whole London Local Transport Network for eligible residents, as well as free bus travel in England. As a discretionary concession, London residents aged 60 plus can obtain a 60 plus Oyster card, which allows free travel on bus, Tube, tram, DLR, London Overground, TfL Rail and most National Rail services within London.
Reimbursement
The underlying principle of reimbursement is set out in domestic regulations, which state that operators should be left no better and no worse off as a result of the existence of concessionary travel schemes. Therefore, the calculation includes:
- concessionary passenger journeys
- revenue forgone - an estimate of the revenue that would have been made in the absence of a scheme
- additional costs incurred due to journeys “generated” by the scheme’s existence, such as operating, capacity and peak vehicle costs
- additional costs incurred by administering the scheme
In March 2021, 2022, and 2023, temporary statutory instruments (SI) were laid to remove the requirement that a bus operator be ‘no better off’ as a result of providing a concession. This allowed TCAs to continue to reimburse at pre-pandemic levels, should they wish. The current SI will expire in April 2024 and the underlying principle of ‘no better and no worse off’ reimbursement will be reinstated.
Geography
Metropolitan (met) areas: Greater Manchester, Merseyside, South Yorkshire, Tyne and Wear, West Midlands (county) and West Yorkshire.
Non-metropolitan (non-met) areas: Shire counties and unitary authorities. All areas within England that are not London or a Metropolitan area.
Background notes
There is an accompanying background quality report for these statistics.
About these figures
Statistics in this report are derived from DfT’s annual Concessionary Travel Survey. This survey is issued to each of the Travel Concession Authorities (TCAs) in England.
The overall response rate for the year ending March 2023 was 100%.
Where data were missing from the survey, statistics are determined using:
- information from adjacent years
- information from similar authorities
- TCA websites (where applicable)
- alternative sources
In this release, numbers may not add up to totals and percentages may not add up to 100% due to rounding.
Interpreting trends over time
These statistics were affected by the coronavirus (COVID-19) pandemic and associated restrictions, where travel on all modes decreased. The number of bus journeys decreased as a result of these travel restrictions, including concessionary bus journeys. The expenditure on concessionary and other bus use by local authorities changed to support the provision of services during this time.
Year-on-year changes in the number of concessionary passes should be treated with caution. They can see major changes when TCAs:
- perform manual exercises to clean their records
- change their pass renewal policy
- encourage take up of the scheme
Users and uses of these statistics
Within the Department for Transport, these statistics are used to understand the impact of changes to the concessionary travel scheme and reimbursement guidance, for ministerial briefing and to answer public enquiries.
Other users include TCAs and others with an interest in concessionary travel, such as campaign groups, bus operators and specialist transport press.
Related sources of information
The Department for Transport’s Survey of Public Service Vehicle Operators (PSV Survey) also collects figures for concessionary bus journeys, which are compiled into annual bus statistics.
These include:
- overall bus patronage and trends
- youth concessionary journeys
- older and disabled journeys
- operator finances
Official Statistics
Official Statistics are produced to the high professional standards set by the Code of Practice for Statistics. However, these statistics have not yet been assessed by the Office for Statistics Regulation.
Details of ministers and officials who receive pre-release access to these statistics up to 24 hours before release can be found in the pre-release access list.
Next release
The next Concessionary Travel Statistics are due to be published in late 2024.
Any updates to these plans will be advertised via the DfT statistical publications schedule.
To hear more about DfT statistical publications as they are released, follow us on X (formerly known as Twitter) at DfTstats.
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