By and large, there is a simple solution for those users who lost their 25th password (aka passphrase/password ) but still have access to their funds via second PIN on Ledger. All they need is to send their bitcoins to new address which is in their full control (such address can be created with Electrum, for example) and after that send them back to Ledger address created with SEED and new password.
I don't think so, If the case the user shuts down the wallet, he must to setting additional passphrases first before access the wallet. because the passphrase only temporary in Ledger, when shutdown the user must setting back the passphrase in the security setting.