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The payments are processed in blocks and if someone uses less transaction fee than normal, then its slows down confirmation process for everyone. I always put more transaction fee than normal to get it processed more quickly. It has also something to do with Halving.
So you want to say, that couple people with the lowest fee can slow down transactions and confirmation for all other, regardless of who pays recommendation fee (he knows to be high)
I am not sure for that. correct me if I'm wrong
regards