I think if reactions are activated either the limits for the trust levels must be adjusted or the reactions must be counted into the likes as well.
With only two TL3 users it has to be some reasons. And when I check what is used, reactions are used a lot more often than likes. So this can be the main reason here why almost nobody reaches TL3.
Btw, can I somehow check the already reached requirements for the users and what is missing? Are there e.g. data explorer queries or something like that?
Another question and also to be 100% on this: Can trust levels again be revoked (not talking about manually revoking by admin)? I read something about last 100 days which count into an elevation into the next trust level. Or does the TL stay when reached once? I do not understand 100%.