Surabaya city is not yet have a school bus system. With a numerous needy student, the government is realized that free school bus can support the needy student in their transportation cost. The purpose of this research is make a model that can be used by the government to designs the most optimal route and optimal distribution of the free school bus. This paper is focusing on the conceptual framework of the processes in finding the optimal route and analyzing the chosen route. The optimal route is a route that covers the area with the most number of potential passengers, the needy student. The needy density layer is the primary data that will accompanied with street layer, school layer, and bus depot layer. Not just finding the route, the chosen route then used in an accessibility analyst in order to find its effect of the school bus in existing transportation system. The result of this research indicates that the model in this project can be used to find the best route and can support the government in making a decision in the limitation they have. Surabaya, the second-largest city in Indonesia after Jakarta, lies at the eastern part of the island of Java. The government of Surabaya has calculated the participation rate of each education level. The participation rate is a comparison between the numbers of students in a certain education level with all citizens at the respective age level. In early 2008, in Surabaya, the elementary school participation rate was 92.92%, the secondary school participation rate was 79.85%, and in the high school participation rate was 83.53%. There are more than 19,000 citizens of elementary school age, more than 23,000 of secondary school age, and more than 17,000 of high school age who are not participating in school. The primary reason these citizens are unschooled is that they cannot pay schooling costs because they live in needy families. With the number of elementary schools, about 5 times more than the secondary schools and 7 times more than the high schools, students must travel greater distances as they advance to higher levels of education. The city government becomes the committee for public