Then perhaps we're measuring the wrong metric. The whole point of a transport system is to enable people to go about their business, engaging in the economy, rather than being a stand-alone business in itself.
It's right that passengers should pay a reasonable proportion of costs, but not by so much that too many are put off and the cost acts as a barrier to the railway system performing it's function.
Yes, but the public bodies involved (DfT and PTEs, mainly) have budgetary limits set by the Treasury, after agreeing all the cross-departmental objectives (employment levels, housing development, city deals etc) which is usually on a 5-year or parliamentary term basis.
They have to operate the transport system within those limits.
That's why premiums from rail franchises and cost efficiencies by PTEs, or fare increases, matter so much in the wider equation.
If you relax all those constraints, the system just implodes for lack of funding.
When you get down to the operators (TOCs) their objective is mainly about increasing revenue or reducing costs to meet the profile set in their contracts.
The DfT balances all this and tries to deliver equable benefits across the country.
Hence things like withdrawing Pacers in the north when there wasn't a business case for it - somebody else will be paying for that.