I don't think the TOCs would agree with you on this one.
But that is down to opinion and attitude.
I don't know which one is right. There may not be a "right" and a "wrong". I just have the inclination that it should be an easier process for such occasions. Such a system may not even need to be called upon often, if clerk error is rare. Perhaps the industry do not feel that passengers being inconvenienced in these situations are significant issues.
Who will pay for the database to hold the information? Who will monitor and maintain it? Would you have to provide ID to make sure someone else is not using your 'quota'? What would happen if you met your 'quota' and now 'genuinely' needed a refund?
If there is a desire to provide this facility, money will be found. It is not a mammoth project. It is only a database, and in all likelihood a small one which would require very minimal maintenance. Perhaps ID should be required when processing such a refund so that if the process is abused then it can be spotted. The "quota" is a virtual concept. It does not have to be limited to the number of refunds. It can be applied to the total amount of refund, or a combination of the two, and/or other measures.
We have computerised ticketing systems, yet we cannot process adjustments to tickets sold at another station, even if running the same system by the same company. That sounds wrong however you look at it. That is also the central issue really that I am getting to. All the talk about "quotas" is all about how this system is used. There could be zero "quota" and every case be left to the clerk in question to decide if so wished.
To be fair, I think staff do have enough discretion already, but they do have to be very sure of when they use it. It is fair to say discretion is not as wide spread as it used to be because some people take advantage of it, but it is still there.
Just because some people abuse these facilities does not mean it should not be provided. There is a balance to be struck somewhere. If you implement a system of this sort, it is inevitable that some people will take advantage and there may be some related monetary losses, but meanwhile you generate goodwill from those who will not be inconvenienced when an issuing error occurs.
Where the balance is, I don't know, and it is not one for me to find. It is just an idea for possible improvements.