A Public Transport Ticket that Moved a Country: Assessing the Value of the German 9-Euro-Ticket as a Socio-Technical Experiment

Michael Bissel

doi:10.32866/001c.84645

Bissel, Michael. 2023. “A Public Transport Ticket That Moved a Country: Assessing the Value of the German 9-Euro-Ticket as a Socio-Technical Experiment.” Findings, August. https://doi.org/10.32866/001c.84645.

Download all (4)

Figure 1. ROSES flow diagram of literature review
Download
Figure 2. Overview of learning processes
Download
Supplemental Information 1: Review Protocol
Download
Supplemental Information 2: Screening Details
Download

View more stats

Abstract

This paper examines the German 9-Euro-Ticket from summer 2022 as a socio-technical experiment. Based on a systematic literature review of evaluations and accompanying research, three categories of learning processes are distinguished. The results suggest that the 9-Euro-Ticket enabled technological, social and institutional learning. Thus, the study provides a new perspective on this temporary policy and underscores the value of experimentation as a governance tool for the transition to sustainable mobility. This value goes beyond the direct traffic-related impact: The contribution of the 9-Euro-Ticket to a new stable configuration, the ‘Germany ticket’, is identified as the main output.

1. Questions

From June to August 2022, the 9-Euro-Ticket allowed passengers to use public transport across Germany for nine euros per month (Loder et al. 2023). This temporary policy aimed to reduce cost of living in view of Russia’s war in Ukraine as well as carbon emissions (Dietl and Reinhold 2022). It can further be seen in the context of the Covid-19 pandemic (Nobis and Kolarova 2022).

The 9-Euro-Ticket represented a disruptive shift and dominated public debates (Hille and Gather 2022). Accordingly, it is considered the ‘largest field experiment in the mobility sector’ (Krämer and Korbutt 2022). Regarding the term ‘experiment’, a natural science and a socio-technical understanding can be distinguished. Within the latter, alternative solutions promote technological, social and institutional learning. They are ‘seeds of change’ for new stable configurations to fulfill societal functions such as mobility (Sengers, Wieczorek, and Raven 2019).

Many research projects examined the 9-Euro-Ticket, at least partly, from a natural science perspective. They assessed impacts on traffic volume, mode choice, air quality, and the economy (Dietl and Reinhold 2022; Engler and Rusche 2023; Gohl and Schrauth 2022). However, the informative value may be limited by pre-post analyses, the short duration of the experiment, lack of previously defined evaluation criteria, and a parallel fuel tax reduction (Becker, Ortmanns, and Bissel 2023; Krämer, Wilger, and Bongaerts 2022).

Notably, the 9-Euro-Ticket also fits well with the socio-technical understanding of experimentation, especially with the concept of ‘sustainability experiments’ (Sengers, Wieczorek, and Raven 2019). Thus, by investigating the learnings from the 9-Euro-Ticket, this study takes an alternative approach and examines the value of the ticket as a socio-technical experiment rather than its impact as a policy.

2. Methods

This study builds on a review of research on the 9-Euro-Ticket. A systematic search to ensure comprehensiveness and transparency (Snyder 2019) was combined with a qualitative narrative synthesis (Popay et al. 2006).

The databases Scopus and Web of Science as well as Google Scholar were consulted. The latter is deemed particularly important to identify grey literature (Haddaway et al. 2015). Overall, the search returned n = 350 records. Entries were screened based on pre-specified criteria (see Figure 1). Finally, 18 documents remained. A review protocol can be found in Supplemental Information I.

Figure 1.ROSES flow diagram of literature review

3. Findings

The included studies are characterized by a variety of objectives and methods (see Supplemental Information II). Their results can be broadly categorized into technological, social and institutional learning (Figure 2).

Figure 2.Overview of learning processes

Synthesis

First, the ticket enabled technological learning in terms of insights regarding public transport provision. Besides the low price, simplicity and nationwide validity were identified as success factors (Krämer, Wilger, and Bongaerts 2022; Nobis and Kolarova 2022; VDV, Deutsche Bahn AG, and DB Regio AG 2022). As a result, more than 30 million people (including existing subscribers) used the 9-Euro-Ticket each month. 70 to 80% rated it as attractive (VDV, Deutsche Bahn AG, and DB Regio AG 2022) while 10% disagreed (Loder et al. 2023). While the ticket reached the middle of society (Nobis and Kolarova 2022), popularity was higher among young people, low-income citizens, and residents of larger cities (Gaus, Murray, and Link 2023; Krämer 2022; Loder et al. 2023; VDV, Deutsche Bahn AG, and DB Regio AG 2022). Some studies suggest greater use for leisure activities (Dietl and Reinhold 2022; Loder et al. 2023; Nobis and Kolarova 2022). Others emphasize commuting and daily travel (Krämer, Wilger, and Bongaerts 2022; VDV, Deutsche Bahn AG, and DB Regio AG 2022). Indications of willingness to pay range from 20-30 euros (Aberle et al. 2022; Gaus, Murray, and Link 2023; Hille and Gather 2022; Klosterkamp, Papendieck, and Francke 2022) to 50-60 euros in some (sub)samples (Krämer, Wilger, and Bongaerts 2022; Loder et al. 2023; Nobis 2022).

Second, in terms of social learning, the 9-Euro-Ticket shaped perceptions of public transport, stimulated discussions about its societal role, and improved social inclusion (Krämer, Wilger, and Bongaerts 2022). Research indicates that attitudes towards and trust in public transport increased (VDV, Deutsche Bahn AG, and DB Regio AG 2022). An analysis of Twitter posts reveals a lively political debate, including fundamental issues such as fairness of transport subsidies. For example, whether the 9-Euro-Ticket represents a ‘freebie mentality’ (Laser 2023). In parallel, a discourse analysis based on 9-Euro-Ticket memes highlights discussions about the societal role of public transport as well as social status and mobility (Milner and Wolff 2023). Regarding status, two research projects focused on low-income households and stress access to the transport system as a prerequisite for social inclusion. The studies found positive effects of the ticket on quality of life driven by increased freedom and autonomy, access to essential elements of social life and reduced bureaucracy. The participants used the ticket for basic needs such as grocery shopping and medical appointments and also increased leisure activities. Moreover, the ticket improved the mobility of children and adolescents (Aberle et al. 2022; Hille and Gather 2022).

Third, the 9-Euro-Ticket was an opportunity for institutional learning, including but not limited to public transport operators (Krämer and Korbutt 2022). For instance, the shared mobility provider Moia evaluated the impact of the 9-Euro-Ticket on its services and found no lasting negative impact on demand. This resulted in reflections on stronger integration of its services with public transport (Pfundstein et al. 2022). Also, driven by the 9-Euro-Ticket, the TU Berlin conducted a study to investigate commuting of employees and to understand mobility-related needs and barriers. Besides learnings relating to public transport (e.g., barriers regarding job tickets), overarching institutional measures to promote sustainable mobility were identified. This also includes potential measures to promote other transport modes such as secure bicycle storing (Becker, Ortmanns, and Bissel 2023).

Conclusion

In summary, the 9-Euro-Ticket enabled far-reaching learning processes. While the experiment may not have shifted all car trips to public transport (Loder et al. 2023) and may not have directly led to lasting changes in mobility behavior (Gaus, Murray, and Link 2023), it may indeed represent a ‘seed of change’. The study thus supports the view that the experiment has ‘moved’ Germany (Hille and Gather 2022) on its path towards a mobility transition (Krämer, Wilger, and Bongaerts 2022). The 9-Euro-Ticket can be seen as a successful socio-technical experiment with the 49-euro ‘Germany ticket’ as a new stable configuration (Krämer, Wilger, and Bongaerts 2022).

Acknowledgments

I would like to thank two anonymous reviewers for their comments on an earlier version of this manuscript as well as Sophia Becker, Katharina Götting and Anke Kläver for useful discussions and helpful comments on this project. This work was financially supported by a scholarship granted by the Foundation of German Business.

Submitted: July 05, 2023 AEST

Accepted: July 28, 2023 AEST

References

Aberle, Christoph, Franziska Havemann, Laura Porsche, and Julian Weissinger. 2022. “‘Endlich kann ich meine Enkelkinder öfter mal sehen’: wie einkommensarme hvv-Fahrgäste das 9-Euro-Ticket nutzen und was das Ende des Angebots für sie bedeutet.” Institut für Verkehrsplanung und Logistik, Technische Universität Hamburg. https://tore.tuhh.de/handle/11420/13471.

Becker, Sophia, Meike Ortmanns, and Michael Bissel. 2023. “Nachhaltig unterwegs zur TU Berlin: Ergebnisse einer Vorher-Nachher-Befragung zur Mobilität der Beschäftigten im Kontext des 9-Euro-Tickets.” Technische Universität Berlin. https://doi.org/10.14279/DEPOSITONCE-17522.

Dietl, Kai, and Tom Reinhold. 2022. “Das 9-Euro-Ticket: Verkehrspolitik oder Sozialpolitik? Eine Bewertung aus Frankfurter Sicht.” Internationales Verkehrswesen 74 (4): 15–19.

Google Scholar

Engler, Jan Felix, and Christian Rusche. 2023. “Wirtschaftliche Auswirkungen des 9-Euro-Tickets.” IW Trends 1/2023. https://doi.org/10.2373/1864-810X.23-01-01.

Google Scholar

Gaus, Dennis, Neil Murray, and Heike Link. 2023. “9-Euro-Ticket: Niedrigere Preise allein stärken Alltagsmobilität mit öffentlichen Verkehrsmitteln nicht.” DIW Wochenbericht 14+15/2023:163–71. https://doi.org/10.18723/DIW_WB:2023-14-1.

Google Scholar

Gohl, Niklas, and Philipp Schrauth. 2022. “Ticket to Paradise?: The Effect of a Public Transport Subsidy on Air Quality.” Discussion Paper 50. CEPA Discussion Papers. University of Potsdam. https://publishup.uni-potsdam.de/55846.

Haddaway, Neal Robert, Alexandra Mary Collins, Deborah Coughlin, and Stuart Kirk. 2015. “The Role of Google Scholar in Evidence Reviews and Its Applicability to Grey Literature Searching.” PLOS ONE 10 (9): e0138237. https://doi.org/10.1371/journal.pone.0138237.

Google Scholar PubMed Central PubMed

Hille, Claudia, and Mathias Gather. 2022. “‘Das 9-Euro-Ticket hat mir gezeigt, dass man nicht alleine sein muss.’ – Mit dem 9-Euro-Ticket zu mehr sozialer Teilhabe?” Band 29. Berichte des Instituts Verkehr und Raum. Fachhochschule Erfurt.

Klosterkamp, Marie, Paul Papendieck, and Angela Francke. 2022. “ÖPNV für alle? Erwartungen an das 9-Euro-Ticket vor Start der Maßnahme.” Internationales Verkehrswesen 74 (3): 78–81.

Google Scholar

Krämer, Andreas. 2022. “Erste Erfahrungen mit dem 9-Euro-Ticket.” Der Nahverkehr 40 (7/8): 24–26.

Google Scholar

Krämer, Andreas, and Anna Korbutt. 2022. “Das 9-Euro-Ticket. Ziele, Wirkungsmechanismen und Perspektiven.” Internationales Verkehrswesen 74 (3): 10–13.

Google Scholar

Krämer, Andreas, Gerd Wilger, and Robert Bongaerts. 2022. “Vom 9-Euro-Ticket zum Deutschlandticket.” Nr. 3. VARI Forschungsbericht.

Laser, Stefan. 2023. “Obsoleszenz statt Transformation im Schienenverkehr.” Working Paper 25; CRC Media of Cooperation Working Paper Series. Universität Siegen. https://doi.org/10.25819/UBSI/10201.

Loder, Allister, Fabienne Cantner, Lennart Adenaw, Nico Nachtigall, David Ziegler, Felix Gotzler, Markus B. Siewert, et al. 2023. “Germany’s Nationwide Travel Experiment in 2022: Public Transport for 9 Euro per Month - First Findings of an Empirical Study.” arXiv. http://arxiv.org/abs/2306.08297.

Milner, Ryan M., and Paul Wolff. 2023. “On the Meme Train to Sylt: Memetic Becoming and Ambivalent Identification Online.” Social Media + Society 9 (1): 205630512311588. https://doi.org/10.1177/20563051231158825.

Google Scholar

Nobis, Claudia. 2022. “Das 49-Euro-Ticket: Das Potenzial Eines Neuen Angebots.” Webinar – Das 9-Euro-Ticket und die Verkehrswende (Teil 3) – Ausblick: Was muss die Politik jetzt für den ÖV tun?, Online, November 15. https://elib.dlr.de/193283/.

Nobis, Claudia, and Viktoriya Kolarova. 2022. “The Decline of Public Transport during the COVID-19 Pandemic and the Impact of the 9-Euro-Ticket in the Summer 2022 - Results of a Multiple-Wave Study in Germany.” In ETC – European Transport Conference 2022, Milan, Italy. https://elib.dlr.de/193279/.

Google Scholar

Pfundstein, Christof, Tim Sadler, Nico Kuehnel, and Felix Zwick. 2022. “Ridepooling unter Einfluss des 9-Euro-Tickets. Auswirkungen auf die Nachfrage von geteilten Mobilitätsdiensten am Beispiel von Moia.” Internationales Verkehrswesen 74 (4): 52–56.

Google Scholar

Popay, Jennie, Helen Roberts, Amanda Sowden, Mark Petticrew, Lisa Arai, Mark Rodgers, and Nicky Britten. 2006. “Guidance on the Conduct of Narrative Synthesis in Systematic Reviews.” https://www.lancaster.ac.uk/media/lancaster-university/content-assets/documents/fhm/dhr/chir/NSsynthesisguidanceVersion1-April2006.pdf.

Sengers, Frans, Anna J. Wieczorek, and Rob Raven. 2019. “Experimenting for Sustainability Transitions: A Systematic Literature Review.” Technological Forecasting and Social Change 145 (August):153–64. https://doi.org/10.1016/j.techfore.2016.08.031.

Google Scholar

Snyder, Hannah. 2019. “Literature Review as a Research Methodology: An Overview and Guidelines.” Journal of Business Research 104 (November):333–39. https://doi.org/10.1016/j.jbusres.2019.07.039.

Google Scholar

VDV, Deutsche Bahn AG, and DB Regio AG. 2022. “Deutschland steigt ein. Abschlussbericht zur bundesweiten Marktforschung.” Verband Deutscher Verkehrsunternehmen e. V. (VDV) / Deutsche Bahn AG / DB Regio AG. https://www.vdv.de/deutsche-bahn_vdv_9-euro-ticket-abschlussbericht.pdfx.