Because if they renege on a commercial contract no one will again bid for government work at a reasonable price (and possible have an effect on the government's credit rating), but they'll still get civil servants even if they treat them badly.
They pushed it into administration (by means of not bailing it out), then took it over, and the shareholders lost out. As my father-in-law (a Railtrack shareholder) never tires of complaining.
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