I have been a loan officer for 6 years now and although I stick with residential mortgages, I am familiar with this issue as many levy a loan against the house to consolidate. So, I have seen every messy student loan situation out there.
Like the health care system, the education system needs to be revamped from the bottom-up, not the other way around. If they only allow you to refi student loans into lower rates, it would be the same effect as Obamacare (to a point) and not attacking the real issue at hand, the perceived NEED for a college degree, and the COST of attaining one.