Maybe this is some kind of strategy, make BfA as bad as possible that the upcoming expansion looks as good as possible.
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Balancing three dozen tier sets is harder than balancing hundreds of awful Azerite traits? Uhm don't think so but maybe Blizzard does.
I could see them removing Azerite in 8.2 entirely and just reintroduce tier sets because they're unable to fine a better solution.