Bard here. over 100 commendations now. I also level my WAR trough low lvl duty roullette but most of it has been gathered from bard. I reward outstanding people. Unless I find a really great party where halfway trough we already admit that dps commendate eachother while tank and healer do so likewise.
The op's problem though is valid imo. I like to help my guildies trough AK when they need their relic or something. We get 1 random person who performs fantastic! Yet because we are guildies I cannot commendate that person... bit strange imo