Shuttles tend to be free of charge more often than buses, for various reasons. This shuttle being gratis does not imply that any other buses in the area are free.
Why should the name of the vehicle type depend on whether some governments have a tendency to make them free? It's still a bus. A small bus. A shuttle and a bus. Perchance a shuttle bus. Or just either. But definitely both.
Dude, it's not a matter of vehicle type, even trains can be shuttles. It just means that its purpose is to bring people from one point to another without stops, usually from some transportation hub. It's a shuttle because IT'S WRITTEN ON ITS SIDE.