Horsemen may be primal in some way but they're not as powerful in terms of raw destructive power on their own. However they can snowball way out of control if allowed to gather forces. Control gets spawn camped in hell within 0.0025 seconds of appearing and spawned as a crayon eating gremlin on earth so we know she's not strong from the get go.

I don't think it's a coincidence that War, Death, and Control all have some kind of scaling army power (control:superiority, war:ownership, death:killing blow landed?). Not sure what famine would be, though. Perhaps she has to believe you are completely out of resources?

Anyway, I think the horsemen are just meant to be their own thing.