It seems that in general, trying to balance a game like ESO for BOTH PVE and PVP at the same time is inevitably going to cause problems.
I believe most of the community would agree that having strong or potentially broken abilities work differently in PVE and PVP would make balancing the game for both PVE and PVP much, much easier.
It seems like an easy solution to me that will make balancing the game infinitely easier. Trying to balance a skill for both PVE and PVP seems troublesome to me. If some abilities are too strong (or too weak) in PVE or PVP why not just have them work differently in each.
Maybe there is something in the coding that prevents this I don't know but this seems like the easiest foundation for future balancing. That way if an ability is shown to be too strong in PVP but not too strong in PVE it can be tweaked appropriately.
V12 Corporal
Victoria Concordia Crescit