Rich,
$2MM in revenues is most often not as good as $4MM, but seldom do you see the scenario you pose. Though unrelated, this reminds me of a commercial featuring a morose Turkish proprieter of Persian carpet. It seems that after a great deal of time of offering his product for sale, he finally resorted to advertising. Someone came in after seeing the ad and paid the outrageous asking price for the large, beautiful hand-crafted carpet on display. Instead of being elated, he was sorrowful. You see, this was his one and only carpet, and now he had nothing to do. (Point of the commercial was that if you want to sell, advertise in whatever. Another moral of the story is that not all people are in business to make the most money they can.)
In the short run and with excess capacity, one is able to sell just above marginal costs and add to the bottom line. Over time this strategy fails because fixed assets depreciate, their costs have to be recovered, and they must be replaced. As importantly, you risk losing your loyal, higher paying customers (a problem which the wireless phone services sellers often face as they push for volume and market share, and golf courses with variable pricing based on days and times).
ROI is indeed king. Low-margin/high-volume operations can be quite risky. I've always liked the idea of being the low-cost producer of acceptable quality goods or services for large volume markets. Walmart does a good job in this area. I've yet to see a single corporation do this well in golf, and I don't think that it is possible for government to even think in these terms.