I think the problem lies with regional variations.
The area I deal with is based at Kellingley and are funded by viable, producing collieries. The South Wales station has very little to gain funds from. The small mines there have traditionally lived off the back of the larger contributors.
Now there are no large contibutors.
Also, the way the service charges for call outs has, I think, had problems. This was brought to a head with the Gleision Colliery incident.
Basically, you are charged a retaining fee annually which is quite small. Then in the event of a call out, you are charged for all work at full rates.
I believe that they are not able to recover the charges fully in the Gleision Colliery case, hence a big loss.
Ultimately, if a mine cannot demonstrate that it has adequate rescue provision, an Inspector could issue a stop notice?