That's a great question. I'm not sure there is a cut and dry answer but I know that for myself when I decided to sell out and go all in, reconciling and committing myself to the amount of work and effort required to consistently harvest bulls I started killing them every year. Before that I was always looking for an "easier" bull; easier terrain, easier access, easier hunts, easier damn near everything. Elk aren't easy! Even the one's I've lucked into close to a road aren't easy, everything about elk is work, period. In my humble opinion I think the reason success rates are low is folks not wanting to put in the effort.
Effort goes beyond the physical pain and suffering that most elk hunts demand. Effort means learning elk; scouting, habitat, habits/behavior, food, migration, calling, glassing, gear; all of this requires effort. Effort that most folks simply don't or won't put in. It's just easier to always do the same thing and hope you get lucky. Well, lady luck is a fickle mistress, I learned a long time ago to make my own luck. When luck meets preparation good things happen.
This is just my dos pesos. It'll be interesting to see what others have to say.
"Let's get ready to Rumbuuuuuuuuuuuuuuuuuul!!!!"