First, nobody has an incentive to provide negative feedback except for serious cases (i.e. you cannot work with this person) or for political reasons. It's a prisoners dilemma with indefinite iterations, so each player's incentive is to provide positive feedback.
Second, in my experience, it's only reviewed by one person rather than by a management team, which opens it up to an array of biases on the manager's part. If a manager thinks that someone is a great team-player, and a reviewer says that that person is a petty tyrant, they're likely to doubt the reviewer's motives rather than updating their beliefs.
Peers supply the feedback, but one manager has the time/resources to review it... so basically they can interpret it however they decide.