You can buy the developer's tools for your version of Access which gives you
the ability and license to create and distribute installation packages that
will install a royalty free Runtime version of Access on a user's PC. With
that package you can include an Access file that contains the form you want
them to use, but an Access form cannot exist outside of an MDB being run
under Access.
This makes the Access runtime free for *the user*, but you have the one time
expense of acquiring the developer's tools in order to give it to them.