It’s harder precisely because it has more competition both within the class and amongst all other classes to contend with…
In your scenario, havoc is “bad” for a bit…if they had an alternate spec, they might just see people switch to that whereas in reality, havoc would have a “raid build” and a “mythic+” build which would use distinctly different talents that would then make balancing easier for them in each respective content pillar to deal with.
The reality is Blizzard doesn’t want any given spec to be “good” or “bad” intentionally (despite the noteworthy warlock example people no doubt are rushing to bring up) but the reality is that will always be the case so long as they are allowed and expected to be competitive within each content pillar itself.