It's hard to imagine that the habitually non-upgrading hotels do so out of a lack of training/understanding, or that it's accidental. Some (like the Pulitzer in Amsterdam) may have legitimate capacity issues, but at (a small number of) others it really seems like they've decided to make their own rules. Even the non-compliant often have the rules sticker right there on their computers. Makes you want to peel it off and read it to them.