Came across a FATE where a 42 BLM was engaging the boss/ kiting it

I tomahawk'd, provoked and proceed to HS -> SS -> BB combo, ICON WAS STILL GREEN! After 15-20 seconds of doing the same enmity combo I finally had aggro. I was lvl 46

Something is wrong here. Either tanks need a snap-back threat move (Provoke is utterly useless) or enmity in attacks should be looked at