In France, Lille did make it free for all. This is probably helpful to reduce car needs.
https://fr.wikipedia.org/wiki/Gratuit%C3%A9_des_transports_e...
It works partly because the fines are relatively significant and levels of public trust and integrity are likely more universal, so there are few "Schwarzfahrers" (fare dodgers, literally "black travelers").
Caltrain has the same "honor" system, but conductors often do proof-of-payment checks.