Heart seeds did not exist at that time. Just commendations of valor. It would have taken 100+ level 20 quests to farm enough commendations of valor. The compromise was to leave the tokens as they were.
Ironic, of course, because had the system been implemented that the devs wanted, we'd all be sitting on more hearts of wood than new knew what to do with.
But who wants to give them that much rope...
I still remember balking at the price of a flawless dragonshard was when they implemented crafting. I asked them what they were smoking at the time. 1,000,000 siberys fragments? What in the world.
Did they ever make that more functional? No... 15 years later, and I don't think I've gotten enough fragments for a dragonshard fragment... it would have taken 100 bank spaces to hold the 10,000 fragment stacks. But everyone on the forums kept telling me that it would scale and I was freaking out about nothing.
Remember... back then you had to wait for 10 seconds at the stone of change... so you would also have been converting to dragonshards for HOURS of literal time.