Four in 10 South Koreans believe the central government should bear most of the cost of free subway rides for older adults, a survey showed, as the financial burden of the program grows. The study found the policy generates more than 650 billion won in annual social benefits, but with operators' deficits widening, researchers called for a cost-sharing framework that includes state funding.
Seoul Metro released the findings on the 22nd at a final briefing for a research project on making the urban rail free-ride program sustainable. The study was commissioned jointly by six urban rail operators nationwide — in Seoul, Busan, Incheon, Daejeon, Daegu and Gwangju — and conducted by the Korean Society of Transportation.
In a survey of 2,000 adults nationwide, 41.7% said the central government should primarily fund the program, while 31.9% pointed to local governments. Together the two responses accounted for 73.6%, far outweighing the 9% who said operators should cover the cost themselves. A majority, 51.5%, said the program should be maintained, more than double the 24.4% who said it should be scrapped.
Social benefits from free rides for older adults were estimated at 650.6 billion won a year as of 2025. Health gains — including prevention of suicide and depression and a decline in major illnesses — were the largest component, with the study also finding positive effects on traffic accidents, pollution and local commercial activity.
Those benefits are projected to exceed 1 trillion won by 2050 as the population ages. Over the same period, however, the combined net loss of the six operators is expected to reach 3.1486 trillion won.
Researchers said securing the program's sustainability requires a cost-sharing framework that includes support from the national budget. Because the program is grounded in national law, including the Welfare of Older Persons Act, ministries such as the Ministry of Land, Infrastructure and Transport and the Ministry of Health and Welfare should set standards for sharing the cost, they said. The study cited France, Germany and Britain, where governments and local authorities share or compensate for revenue lost to transport welfare discounts.
The researchers also examined raising the eligibility age from 65 to 70. Under the current system, Seoul Metro is projected to fall into complete capital erosion in 2033; raising the age to 70 would delay that only to 2034, the study found. That means an age increase alone would not resolve the financial problem.
The six operators have argued that, unlike Korail, they receive no state compensation for revenue lost to free rides, calling the gap inequitable and demanding government support. In September this year, they met the ruling party's floor leader to press for legislation mandating state funding.
"Public investment to maintain the free-ride program was assessed as a policy choice with sufficient economic justification," said Han Young-hee, head of Seoul Metro's planning division. "We will actively make the case for reform to the National Assembly, the government and other key stakeholders, and build consensus for a reasonable cost-sharing framework."
