@foggybits:
My point is that society generally operates in a way that is sub-optimal for something. Most people can see that, and understand it, and many would like it to change.
Then something big happens. A natural event or a plague. Circumstances are dramatically and rapidly changed, because it has to.
And afterwards, sometimes changes stick. Or there are subsequent changes one things are settled down.
Human beings are, on the whole, very good at adapting to seismic, forced changes, and very bad at coming up with coherent and sustained plans to achieve those changes (see: the appalling rate of legal and social change).
An example would be women's labour and suffrage.
Almost a hundred years were spent arguing about it, and it wasn't achieved.
WW1 happened - and boom, massive influx of women into the labour force, vote granted in 1918.
Subsequently, society still hasn't nailed the dynamics of women entering the workforce, and the pace of change has been slow.
Essentially, society is a very laborious vehicle for achieving change, whereas major events get humans adapting very quickly and often successfully (n.b. there are drawbacks to this, up to and including genocide - but that's for another essay!).
To bring it back to your point - footfall of the TFL is a consequence of trying to achieve a particular goal (for the rail unions, those disorderly passengers getting in the way of the smooth operation of their services) - getting people to work. But not all of those people needed to be physically present at their work, getting there was costing them time and money, causing pollution, and having them sit in offices that cost them money to run, increasing the costs of service provision.
So 'improving footfall of TFL' is not a systemic issue we need to solve.