If you are going to introduce a set like Rage of the Ursauk then change Empower again so that it gives something like 20% increased damage to Heavy Attacks against other players. Otherwise this set is for PvE only. I get that one shot builds in PvP using Empower were a problem but instead of making Empower do nothing in PvP, just dial down the damage multiplier from 1.8 to 1.2 or 1.25 when the target is another player. Making Empower a PvE-only skill was never the right answer.
But yeah ZOS...Cloak is the problem.
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sudo rm -rf /
don't try this at ~