I do not like this. For one thing, you're taking away a popular reason for running epic content that uses tokens, and making that part of the game more obsolete. While I understand sagas, and it is nice to get extra rewards for running all quests, instead of farming (which I intensely dislike, so talking my guildies into something different now has an added bribe), you are making it so that a toon that you are woking on multiple heroic TRs must run several levels worth of epic content. This seems to be counterintuitive to lowering the xp needed to reach 20 in the first place.
Whereas right now, you earn tokens towards a heart with each epic quest, you're chainging the rules to make it so that you have to run 10-15 quests to even earn a small part of what you need to get a heart. If you want to make commendations to earn hearts a reward, that's great, but allow those people who don't have those packs, or don't like those packs to still earn HTR hearts the way we always have. This way, players who want to level to 28 before going back to level 1 can do it their way, and those who are happy returning to beginning content aren't forced to play a game they aren't interested in.
Not to mention that this does not give many options to players who want to earn the commendations. They have to run eveningstar, or GH, whether they enjoy it or not. As it is now, people have choices. VON, House D, Carnival, chrono, etc.