It's obviously a commercial use if I'm using your items to make money... But, what if I'm a charity? What if it's hosted on a website that runs banner ads? What if I don't turn a profit? This was a years-long discussion that you can review https://wiki.creativecommons.org/wiki/NonCommercial
Code emphasizes what consensus we need to come to, the consensus that those complex legal documents define. For example, that's part of why the GPL is so long, it's specific.