I don't think you'll like this answer.

IIRC, "Service mode not in ctrlr ini" was brought up before on mametester forum, and I think the answer was "not a bug". Again IIRC, someone posted a "fix", but read below (and I don't have it).
AFAIK, you can't do "service mode" in ctrlr ini files. You can't do "service mode" in the "Input (General)" UI either, and I think they're directly related.
Add that even if ctrlr ini files could do "service mode", almost all drivers explicitly assign the F2 key as the input in the driver source code, which would override ctrlr ini files, until you go to the game specific input UI and assign the "default" to that input (enter then esc). Since you'd have to go and remap every game anyway even if you could edit in ctrlr ini .... being able to would be not very productive.

Sorry.