ORR begins ticket enforcement review as it confirms scope and deadline

The Office of Rail and Road (ORR) has begun its independent review of how train operators tackle fare evasion.

Transport Secretary Louise Haigh announced earlier this month that she had asked the regulator to assess enforcement practises after a series of “egregious” prosecutions.

ORR has now begun its review, which will review revenue protection enforcement practices, including the use of prosecutions, and whether ticket conditions are clear and effectively communicated, with conditions correctly applied.

In her letter to ORR CEO John Larkinson, Haigh said her priority was “to ensure that fare evasion is addressed, but whilst always treating passengers fairly and in accordance with the correct procedures”.

She added: I would like the review to assess and make recommendations on two main areas: operators’ and retailers consumer practices, such as how they are communicating ticket conditions; and operators’ enforcement and broader consumer practices in this area, including the use of prosecutions.

“I encourage the review team to draw upon advice from independent experts, including legal and industry specialists, as well as engaging fully with passenger representatives. The ORR should consider the operational context and the industry and taxpayer requirement to protect revenue.”

ORR has said that while it is looking into retailing information, terms and conditions, fare evasion and enforcement approaches, wider fares and ticketing reform remain out of scope.

The review will consist of:

Evidence gathering from passengers, passenger representative groups, including Transport Focus and London TravelWatch, the Rail Ombudsman, the Rail Delivery Group, the rail industry, government, and relevant experts.

Analysis of the items referenced in scope above, and their underlying causes. Generating evidence-led findings and noting areas of good and poor retailing and revenue protection practices.  

Production of a final report which may include recommendations for change or highlighting areas for consideration or action.  

A final report will be delivered to the Department for Transport by May 15 2025.