Britain's rail regulator is proposing new rules to ensure a fair market as the launch of the government-owned operator, Great British Railways (GBR), approaches. The Office of Rail and Road (ORR) has opened a consultation on a draft code of practice designed to prevent GBR from gaining an undue advantage in the online ticket sales market.
GBR is slated to take over the running of most of the UK's rail infrastructure and passenger services in the coming months, eventually operating all passenger services by the end of 2027. The new body is expected to handle ticket sales through its own website and app, potentially competing with existing retailers like Trainline. This move has prompted concerns about market fairness, as GBR will wield substantial control over railway operations and fares, supported by approximately £14 billion in annual public funding.
The ORR's proposed Retail Code of Practice aims to ensure that independent online retailers receive fair, transparent, and non-discriminatory access to fares, products, systems, and related services from GBR. It also seeks to prohibit GBR's retail arm from having an unfair advantage over competitors. In the future, GBR will be subject to competition law, which addresses issues such as excluding competitors, distorting the market, or abusing a dominant position.
"Passengers should have confidence that the rail ticket market works fairly, whichever retailer they choose to buy tickets from," said Stephanie Tobyn, ORR's director of strategy, policy, and reform. "Our proposed Retail Code of Practice will provide enforceable safeguards to help maintain a fair and open online retail market, supporting passenger choice."
The move towards public ownership stems from years of issues following the privatization of Britain's railways in 1993. Campaigners and research have pointed to rising ticket costs, frequent delays, service cuts, and timetable chaos, with some studies indicating UK rail fares are significantly higher than in other European countries without a clear correlation to service quality. For instance, research by Transport & Environment found that Great Western Railway fares were two-and-a-half times higher than the average across EU and Swiss operators for similar routes.
Former Transport Secretary Grant Shapps announced plans for GBR in May 2021, describing the existing system as "overcomplicated and fragmented." Labour's manifesto also pledged to bring railways into public ownership as existing operator contracts expire or are breached.
While regulated rail fares, including season tickets and off-peak returns, have been frozen by the government until March 2027, operators can still set prices for unregulated fares, which often increase similarly. The most recent regulated fare increase was 4.6 percent in March 2025. In the future, GBR will set walk-on fares and cap season ticket prices, though private rail businesses may retain more commercial freedom for long-distance fares.
Several train operating companies are already managed by the Department for Transport's operator company, with Great Western Railway set to be renationalized on December 13. GBR is expected to employ around 100,000 staff, making it one of the UK's largest employers.