In this kind of situation I often think of the government as the primary customer, as that's who effectively purchases the services of the rail operator via their contract. Passenger satisfaction is secondary (although theoretically that's mediated via the government regulator). Even more so because there's often no choice for passengers. If I want to get a rail ticket from London to Edinburgh I have to buy it from one rail company. If I want mains water, I have to pay a specific water company. It's the government who chooses, not me.