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HD 4638

A communication from the Department of Transportation (see item 1595-6369 of Section 2 of Chapter 140 of the Acts of 2024) submitting the MBTA Fare-Free Bus Report for fiscal year 2025

194th Legislature (2025-2026)

The report finds limited-route fare-free pilots are inequitable and unsustainable; any expansion should be systemwide with $72–$121 million annual funding and strong evaluation.

Placed on file
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Bill Summary · HD 4638

HD 4638 — Summary

Bill at a glance

  • Bill Number: HD 4638
  • Title/Subject: Communication from the Department of Transportation submitting the MBTA Fare-Free Bus Report for FY 2025 (per FY25 Budget language, 1595-6369 of Section 2, Chapter 140, Acts of 2024)
  • Status: Placed on file
  • Introduced: May 12, 2025
  • Classification: Proposed bill (communication to Legislature)

What this bill does: It formalizes and transmits the Massachusetts Bay Transportation Authority (MBTA) FY 2025 Fare-Free Bus Report to joint and house/senate committees as required by the FY2025 Final Budget language. The report analyzes the feasibility of fare-free bus operations, outlines design and evaluation components, and presents conclusions about pilot programs versus systemwide fare-free service.

Purpose and intent

  • Complies with a legislative directive to study fare-free bus options, including pilots beyond Boston and a framework for data collection and evaluation.
  • Signals legislative interest in exploring year-round fare-free bus service while assessing feasibility, costs, equity, and operational implications.
  • The accompanying materials aim to inform lawmakers about whether limited-route pilots are practicable or if systemwide adoption should be pursued, and under what cost parameters.

Key provisions and findings in the MBTA Fare-Free Bus Report

  • Scope of study: Feasibility of fare-free bus service in the MBTA service area, considering both limited-route pilots and potential systemwide implementation.
  • Design/template for implementation: Provides a proposed structure for establishing fare-free programs, including data collection methods and evaluative criteria.
  • Evaluative criteria (potential route selection): The report outlines criteria such as:
    • Municipality identification of candidate routes
    • Potential ridership increases
    • Improved accessibility for low-income riders
    • Reliability gains from dual-door boarding
    • Potential cost savings from eliminating farebox equipment and enforcement personnel
    • Reductions in rider-driver altercations
    • Geographic equity
  • Consultation: The MBTA engaged community advocacy organizations (e.g., LivableStreets Alliance, Transportation for Massachusetts) in developing the study and report.
  • Key finding (Section 2.6): Limited, route-specific fare-free pilots are geographically inequitable, difficult to communicate, and at odds with MBTA goals for equitable, consistent service. Such pilots are deemed unsustainable and not recommended as a path forward.
  • Cost conclusion for expansion: If fare-free service is to expand, it should be designed to cover the entire MBTA bus network rather than select routes, with estimated annual costs in the range of $72 million to $121 million.
  • Data and evaluation: The report discusses data collection, cost reimbursement, and potential evaluative criteria to assess future fare-free implementations.

Financial and operational implications

  • Systemwide cost estimate: $72M–$121M annually for citywide/MBTA bus network fare-free service.
  • Potential savings: Possible cost savings from eliminating contracted fare collection equipment and enforcement personnel, though offset by higher operating costs and required funding.
  • Operational considerations: Dual-door boarding and rider communications are identified as factors influencing reliability and rider experience.

Implementation timeline and procedural context

  • The directive originates from the FY2025 Final Budget language (1595-6369).
  • The MBTA prepared the FY 2025 Fare-Free Bus Report (dated March 2025) and submitted it to the chairs of transportation and ways & means committees, as reflected in the accompanying bill text.
  • Status: The communication/report is placed on file, meaning it is received by the Legislature but does not enact new policy at this time.

Affected stakeholders

  • MBTA (as the agency conducting the study and potential implementation)
  • Massachusetts Legislature (receiving and reviewing the report)
  • Community advocacy organizations (contributor to study design and feedback)
  • MBTA riders, particularly low-income riders and communities outside Boston, who would be impacted by any future fare-free policy

Context and takeaway

HD 4638 serves to transmit the MBTA’s FY2025 Fare-Free Bus Report to the Legislature. The core takeaway from the report is that limited-route fare-free pilots are not recommended due to equity and sustainability concerns; any future fare-free initiative should aim for systemwide implementation with substantial funding, estimated at $72–$121 million annually, along with robust data collection and evaluative criteria.

Compiled from official sources — confirm details with the bill’s official record.

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