@tkaelin I indeed only copied the most relevant section of that part of the guidelines.
You address a few things in your post if I read it correctly.
1) The guidelines, as explained to me, are an agreed up framework between CITA and the dive operators which are set up in co-operation. I'm not a member/representative of that forum so I'm happy to be clarified/corrected by one of my one-island colleagues. Although I understand it is not a law, as CITA member you do sign the guidelines and agree to uphold it.
2) The CITA guidelines on refreshers. The italics do give so 'wriggle room' for an individual operator if a diver can show proof of their experience. In an earlier SB post we already touched on this subject, and again at the risk of sounding negative and condescending; In my experience, the general average vacation diver (who is the most likely the refresher discussion applies too) we see coming through has: a) no logbook or proof of dive experience b) lost their c-cards c) is not capable or willing in honestly assessing their own skill level, or is telling a 'white lie' to avoid being asked to do a refresher as they 'want to get on the boat'.
Based on this, and having some let's say in-water 'experiences', for diver safety following the CITA regulations more literally is not a bad thing.
3) What consists a good refresher? I'm not familiar with your dive experience, but I'm assuming you have a significant number of dives, have a logbook of some form, and are able to properly assess your own skill and experience level, and will decide and inform what the best course of action is when you need a refresher. Like you did after your 7 year break. That probably puts you in the top 25% if not higher of divers on a vacation destination.
In that case, a pool session would be good enough to get you ready for some open water diving. For the large majority of vacation diver who are getting back into diving after an extended break form the sport in my opinion it is not sufficient. Especially as for the majority of this group they may have only done a limited number of dives before their break.
An open water refresher session gives the diver the opportunity to get reacquainted, and comfortable with the specifics in open water dives. Also it will make that dive when they join the regular boat dives so much safer and more enjoyable that I think it is money well spent.
I do sound negative here, but it is the reality of our work. I love this job, and I love working with divers of every level and respect all levels. I respect that a diver might only be an occasional vacation diver, and needs some more attention and guidance during their dives. Me and every fellow dive pro I know is happy to do that, and we all like to help our guests become better divers.
But a very important part of our job in vacation destinations is maximizing safety of our guests, as well as their enjoyment. That often requires protecting guests from their own lack of knowledge, or willingness/capability to assess their own skill and experience levels. Therefore we tend to err on the conservative side of guidelines.