Commander icon should be based off WvW achivements or merits rather than gold. There could be a merit system where people give others a ranking and when someone get a high enough merit they get the icon. I realize that guilds can easily Create commanders, but i would prefer people who can actually lead instead of stand in lions arch.
Another option would be to make it so the icon requires a certain amount things to be done in WvW ( e.g. keeps taken/defended). At least this way people who have it have actually done some WvW