If the author didn't abuse the fax, why would anyone notice the process was broken. It's only by abusing the existing process that change will be triggered.

You see this all the time in cybersecurity. Nobody cares until there's a breach. Nobody would care if he faxed 25 pages and mildly inconvenienced Karen, but by faxing 500 pages and inconveniencing the whole office, it's going to start something. Even if it takes them another 5 years to fix the process, it's a start.

Realistically, the change will probably be "no more than 25 pages of evidence required". But that's also a win for the person being asked for it.