No issue of id and passport but no refund is allowed. Is the gov now *****ing my payment?

I app**** for my husband id card and passport. I gave the reason for a renewal as resently married. When i had my appointment at Fnb Lynnwood, they would not do his passport as I was suppose to pay a penalty for his passport of R400 because his passport is not full. This was not a block on the internet and i paid the required R140 for the Id card and R400 for the passport. Now i have said if you do not want to issue the id or passport without a penalty, i would like a refund. They refuse. This is not legal. I paid for a service and i am not getting the documents. So, their computer asked for my money, did not charge an exstra amount, but i can not get a refund from them. How is this possible?