The benefit for the cost involved really just isn't there; while drivers aren't cheap they aren't impossibly expensive in comparison with the average number of passengers per train.
My favourite example of how unionised workers whose union invariably presents their preferences as "safety" care little about actual safety was signallers. Historically some mainline rail signallers (same unions) in the UK worked 12 hour shifts at outlying boxes. So you maybe do 3 x 12 hour shifts = 36 hours that's a week's work or take an extra as overtime for 48 hours. Roster maybe a dozen people to work a box and it remains open 24/7. Annoying scientists said, wait a minute, humans don't remain useful and attentive workers for 12 straight hours, especially at night which explains these incidents where a signaller makes a grave error at like 0400 after 10 hours at work. So the safety regulator wants to limit shifts to 8 hours like for air traffic. The unions are apoplectic because if you're a member working a mixture of 3x12 and 4x12 and now they want you to work 5x8 that's up to two days per week extra. Suddenly railway safety vanishes as a concern...
It is possible to make gradual progress. When I was born there were still guards on tube trains. Why? Well there had always been guards on tube trains. Today of course London Underground does not have guards. It just took a long time to make it happen, with I believe the Northern Line being last to stop having guards.
If you are already costing the taxpayer X million per year and then you want another 400M for an upgrade, are you likely to get it?
I think it might be worth increasing the line speed through signaling upgrades and more automation.