Problem is: The gear that would entice people to PVP alot more would have to be better than what they already have. Welfare epics are cute and all but handing them to everyone for killing eachother for a few hours a day is teh lulz.
Theyd have to make earning stuff based on participation instead of winning, because playing melee in PVP would be a loss most of the time, and playing melee in a cap the flag scenario wouldnt be worth a group slot.
Being able to entirely gear out a toon in welfare epics through play of another toon is already getting pretty cheap in this game. Being able to do so through PVP participation would give an entire new meaning to piking.