Well to change the fares they just change the amount deducted from the card. For this change they'd have to make a change that only applies to some of the machines. In a reasonable architecture that's a few lines in a config file plus some way of managing which machines get that file (possibly cumbersome if they didn't plan for this).
The previous post had some good points, but I doubt a government written software system can support that type of change with only "limited effort".