I agree -- the console-based perldoc is not the most easy to navigate beast around. However, it's very easy for other implementations of POD viewers to make tables of contents (Case in point: DBI and perlop pages from http://www.perldoc.com) Perhaps the question to ask is, rather, should the command-line perldoc be made to print out tables of contents?
perl -pe '"I lo*`+$^X$\"$]!$/"=~m%(.*)%s;$_=$1;y^`+*^e v^#$&V"+@( NO CARRIER'
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