Cinco's focus has been almost entirely on endgame because that's where most of his revenue comes from. He hasn't been shy in stating that.

If he could come up with a plan to both make money and 'balance' lower level pvp at the same time by making something like a level 1 stat weapon along with a helm and armor to make a set that ranks up over time (or making scaled stat weapon sets at levels 1, 10, 20, 30, 40), then perhaps he would implement it. I actually wouldn't be surprised to see something like this implemented by the end of the year.

With that said, stat weapons/sets have never been 'balanced'/'skillful' to use, so I doubt this would make lower level pvp any better. However, this is the most likely course of action Cinco would take to change lower level pvp if it does indeed receive any updates.