Well, in a properly build horde deck you should have at least 6 horde cards in your hand. The point is that horde's commons are amongst the cheapest and most effective commons in this game (Dire wolf are 9 damage for 3 recruits or centaur tribe are 12 dmg for 6...) and above this there are a bunch of horde cards which are zero cost cards or just cost a single recruit. of course, the cards have a higher cost and reward the recruits afterwards, but this is more usefull than a bane since you can discard with this your enemies cards. Ofc this means that you should run some sort of dungeon increasers.
On the other hand, it can easily be summoned via apostate or dark horde (In the second case you already got 8 horde cards....)
In fact, this card's effect is just downright powerfull. If you want to change this card, it should be completely reworked, but buffing is the wrong direction.
And, just by the way, justice is far away from being weak, but since i assume you don't have played some zero-cost decks (for example in combination with road of valhalla or valhalla itself) , you can't know...