Commons are in no position to question what a Shaper tells them to do. Does it seem to contradict long term Shaper policy? Maybe, but that is for Shapers to determine, not Commons. It is obvious from the conversations that many of the commons know that what they are doing is illegal. They also know that they had no choice but to follow orders and keep their head down. As Shanti says, the Shapers present unity, and they keep their disagreements internal. If shapers are publicly disagreeing or in opposition, that sucks for the commons because it shows that something very wrong is happening. Doesn't mean they can disobey the guys who summon dragons.