The FA Commission said the Chelsea captain got a lesser ban because the "racist insult was issued only once".
"It may be when you look at all the detail they thought there were reasons for [it]. I can't see it," he said.
Terry was banned for four games and fined £220,000 for racially abusing Anton Ferdinand.
"He's within his rights to appeal. My own view is that it would be more sensible to apologise and accept it's not a good standard," he said.
"I just don't believe in this day and age that anybody can think that it's OK, and that you don't owe an apology, not least to the other player."