For the other passenger former TOCs there's already considerable Government financial support so one might argue that the access charges are included within this subsidy. In other words, the access payments made by the passenger business to Network Rail mainly come from the Government.
The Network Rail Accounts linked in post #41 show that NR received a Network Grant of £7.5bn direct from government, plus £2.2bn in "franchised network access" (track access paid mainly by TOCs) in 2023.
A
Government Rail Factsheet for the same year mentions total government support to rail of around £21bn:
In the FYE March 2023, TOCs received an overall subsidy of £4.2bn from Government
Network Rail received a grant of £7.5bn
Network Rail and HS2 also received a total of £8.9bn in enhancements funding
Unless I'm missing something, this means the TOCS received £4.2bn from the government in subsidy and then paid £2.2bn of it to Network Rail in access charges. This is equivalent to the TOCs getting free track access and then receiving a cash subsidy of £2bn on top.
For passenger rail to operate under the same conditions as freight, with no direct subsidy, they would need negative access charges, where NR would pay them £2 billion for the honour of hosting their trains.
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Returning to the main topic of this thread, the future of rail freight is reliant on government policy supporting it - for example the cancellation of parts of HS2 is a setback for rail freight, not just passenger. However, there is mostly cross-party support on rail freight, and a "put freight on the road" campaign is unlikely to appeal to the average motorist, in addition to being distinctly at odds with stated government policies.
Bigger threats at the moment come from uncertainty over things like the future of the UK steel industry - while their are plans to build electric arc furnaces at Port Talbot and Scunthorpe, any major global financial wobbles, or a downturn in the steel industry itself, could put this investment at risk (at least until they reach the "point of no return" where the money has already been spent, equipment ordered, plant constructed and so on).
On the political / business side of things I think there is some high-level focus on future risks and strategies, but only some of it will be in the public eye. For example the
Freight On Rail campaign or the
Rail Freight Group.
There's always security / infrastructure / safety risk to consider on a daily basis, but I suppose the idea of risk management is to look for the things you haven't already thought about...