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You have to sacrifice rewards to flag, and most of us don't have enough stake to make a big difference, which means either a big whale or tons and tons of minnows have to do it. Plus voting power is a big limitation unless you have enough SP to be able to use small votes to accomplish it.

Me and a few Steemians discussed this yesterday on Steemit.chat. Is there plans to reward down voting? We think there needs to be, if down voting is not incentivized very few will ever flag.

There are talks about it, but currently no.

I think down vote rewarding and account creation are the two problems plaguing Steem's growth. Hopefully they'll soon be solved.