Assmuning there has been reasonable continuity of training, this is similar to someone who takes 20 plus attempts to pass their driving test - do you really want them on the road (in this case in the air) with you?
At 60 hours, unless there have been real problems with the instructor/student relationship, it is likely that the required standard will never be met. Not everyone has what it takes to fly a helicopter just as not everyone can learn to play the piano/sing/tap dance etc etc - it is not a God-given right that you will be safe enough to go solo.