As Korea's population ages rapidly, discussions on reforming the free subway ride system for seniors are gaining momentum. Most seniors themselves support raising the eligibility age, and some local governments have already begun implementation.
According to a Hankook Research poll released on the 7th, 68% of respondents agreed with raising the age threshold as a way to improve the free-ride system. Among seniors aged 65 and older, the approval rate reached 81%. In a survey of Seoul residents last December, 64.1% supported raising the age, and 76.1% of them responded positively to adjusting it to 70.
Behind this shift in public opinion lies the severe financial deterioration of urban rail operators. From 2017 to 2025, losses from free rides across six cities — Seoul, Busan, Daegu, Incheon, Gwangju and Daejeon — reached 5.3652 trillion won.
Seoul's subway system in particular recorded 448.8 billion won in losses from free rides last year. Research findings suggest that raising the free-ride eligibility age to 70 could cut losses by approximately 34.7%.
Some local governments have already moved to implement the policy. In February 2023, Daegu became the first city in the country to announce it would raise the free-ride threshold to 70 and older starting that July, with plans to unify the standards for buses and subways by 2028.
Daejeon also provides free bus rides starting at age 70, while Busan and Seoul still maintain the 65-year threshold. The differing standards across regions are causing confusion among seniors.
Seoul is showing more active movement. With the city council passing a related ordinance last month, the city plans to hold a public hearing this year to discuss raising the threshold to 70, along with a bus fare subsidy plan for seniors aged 65 to under 70.
However, the challenge is that the policy cannot satisfy everyone. Supporters of raising the age worry about the surging tax burden on younger generations, citing the increased tax burden on youth (38.7%) and changing social perceptions (37%) as reasons for their support.
Opponents, however, emphasize consideration for low-income seniors. If subway fares shift from free to partially self-paid, 63.3% of respondents said their burden would increase, and among low-income earners with monthly income of 2 million won or less, 76.1% gave the same answer. Notably, 22.9% of low-income respondents said they would reduce outside activities if fares were imposed.
The government is seeking a phased and comprehensive approach to resolve these conflicting views. The Minister of Planning and Budget said, "Whether to raise the senior age threshold, central government support, local governments' self-help efforts, and consumer burden must be negotiated as a package."
At the same time, restricting free rides during rush hours is also under review. However, analysis suggests the effect on congestion may be limited, as senior free-ride passengers during rush hours account for only 8.3% of total Seoul subway ridership.
Throughout this policy debate, the standing of the Korean Senior Citizens Association has risen significantly. A notable example came in April, when the senior presidential secretary for political affairs met directly with Chairman Lee Joong-keun, made clear that there would be no welfare cuts, and listened to the association's views.
The Korean Senior Citizens Association is no longer merely a senior welfare organization but has established itself as an official consultation partner in senior policy decisions. The efforts by the central and local governments to hold sufficient consultations with stakeholder groups when pursuing such sensitive policies reflect an awareness of the importance of social consensus. For welfare policies where intergenerational interests collide, such consultation processes determine the effectiveness of the policy itself.
