If the AMA was to provide the whole set-up ready to fly, then it would be THEIR program. Until that day comes about, they don't have a program. All they have is a policy.
It's OK for the insurance company to tell the AMA what the limit shall be, 1 flight is enough. It's not supposed to be a free training program. I'll bet the rule gets fudged daily with no dire consequences, but there still needs to be a rule established to appease the insurance company.