The Department told us that the pandemic presented a fundamental challenge to sustainably funding the railways and that the financial pressures have driven a stronger focus to look at the whole system and improve performance, both financially and for passengers.21 The pandemic also exposed the scale of challenge on costs. Network Rail told us that, in previous years, despite excessive costs in the system “the top revenue line was growing. It took the imperative out of the system [to focus on costs] because the numbers were still balancing themselves.”22 The interim financial framework for the railways put in place in response to the pandemic means that HM Treasury carries the risk of any shortfalls in revenue, as it was uncertain how passenger demand would recover. The separation of cost and revenue risk has meant that the Department, HM Treasury, and train operating companies have different priorities when making decisions which impact revenue.23