Some people could just not be pressed to care about commendations as they don't care about the rewards. Personally I see them as an inconvenience. When I enter a dungeon I want it to be over as fast as possible. People abuse the commendation system. They waste 5 minutes at the start discussing who is going to commentate who. Commendations are for people who deserve commendations, not trophies for everyone.

They should just default the system so that if no one commendates anyone it gives 1 to everyone.