Until proven wrong, I am going to assume that an organization will abide by the law. If not, there is recourse to the courts, hence the importance of being able to issue orders.
In Canada, certainly, most organizations or companies care about their reputation and their customers. They want to do the right thing, so they will comply with a recommendation. We saw that, for example, in the Home Depot case, where recommendations were made that were followed, and there was good co-operation.
However, it is important to be able not only to make orders, but also to issue fines. I am not saying this because I want to use these powers, but they help responsible decision-making and motivate decision makers to prioritize privacy. Without it, those decision-makers might prioritize other areas where organizations could be fined because there are no fines in our sector.