How do I get an auto dealer to fax a release of lien when he refuses?

Vehicle was paid in full last year. Title was lost before taking it to county clerk. The county clerk said all they need is a release of lien faxed to them and we could get the title for $11. Called the dealer, mentioned wanting to sell it. The dealer is refusing to fax the release and wants us to make an hour drive and pay him $25. His words to me were "she can't sell it without a title, right? That's why she's going to come to me. I could send a fax or call the state but I'm not going to." Is this legal? Isn't this a type of theft? How can we get him to send a release of lien without driving so far and paying him $25 for something that costs $11 if he would just send a fax?