MMO's are not a police state, they added the commendation system to encourage playing a bit nicer but they cannot just crack down on anything people perceive to be rude. This issues falls almost entirely on the shoulders of the player community as a whole. No one is forcing anyone to act like an unrepentant tool, any expectation of the devs to somehow force people to behave is a cop out.
I do everything I can to foster a positive experience with anyone I meet because I know full well that negativity breeds hatred and people eventually get kicked around enough that they either leave or it hardens them and they become what they used to hate.