Are certain skills supposed to be left at level 1 or 21? The reason being that certain skills benefit so insignificantly from being leveled up that its much more efficient to leave them at base level in order to get an advantage in pvp.
If skills are supposed to become better as they level up, perhaps we can improve those skills in different ways than just damage. Cooldown reduction, better % on effects or longer durations. Because right now some of them are just not worth the skills points.