Big welcome to Turtle's fan! You make good points, Aragorn, although most cards I've seen (Brighton, Lingfield, Plumpton, Fontwell, Folkestone, Ascot, Epsom, Sandown, Goodwood only) all carry extensive "How to Read a Race Card" pages in them, which are very explanatory, including pages on how to bet. There's only so much info you can put out, before someone complains that you didn't explain on a great big sign how to do a Triple Exacta!
As for free racing, I don't think you will get an enormously bigger uptake than if you charge a reasonable fee, to be honest. We held two or three days of free racing at Lingfield, all sponsored by Barry Dennis, and the turn-out was pathetic! We get as many or more during bog-standard AW winter meetings when people pay £13, £6.50 for concessions. Two meetings ago we charged 'only' £6.50 across the board and in spite of it being pretty grim to get there, got a good turnout. So I'm far from convinced about free racing: a lot of it is throughout the work week, when the bulk of the crowd's made up on pensioners and Annual Members. With Annual Membership, you're already paying peanuts per meeting - I think the last time I bothered to work out what it amounted to at Lingfield, but it was under £2 a fixture! AMs also often get their own car park, dedicated bar, are allowed 'X' number of free guest badges per season, or a free race card. They're often offered free outings - Fontwell's really cut back under Northern Racing from the very generous offerings when the course was run by Kerman Holdings (which probably explained why it then ran at a stonking loss!), but most AMs are onto a good deal.
I don't think that 'Racing for Change' is covering anything that the ROA hasn't been banging on about for some time: improving prize money to attract or maintain ownership; provide plentiful, clean, and attractive facilities for all racegoers, not just owners; improve the overall appearance of courses and attract better quality fields with owner incentives (lunches, etc.). If the ROA can get some courses to improve along those lines, it'll make for a nicer experience for the racing public, experienced or novice.
I've been taking tour groups around at Brighton, as an example of trying to give racegoers who buy the package deal a much better insight into what goes into making up a raceday. They get to meet and chat with the Clerk of the Scales, the Judge, the Clerk of the Course, and then are very kindly taken into the SIS film van for what's always a fascinating peek at how films are sent to the betting shops as well as home tv's. For an all-in price, they get the tour, race card, badge, Tote betting voucher, a drinks voucher, and welcome tea/coffee and nice bikkies. It's good value and it's one way in which courses, if they have the wit to do so, can involve the racing public in the overall experience far more. Plumpton's decided it's a nice idea, too, and I've got my second tour on Monday next week.