Because certain champions can't ever be strong in low/regular(anything up to diamond2) elo or they will be bonkers broken in pro play.
Such as Kalista for example.
On the opposite side of the spectrum, some champions like nasus, Yoric, Trynda, Darius, Yi will always feel super strong in low elo (up to plat) and subpar in high elo where people know how not to exploit their super obvious weaknesses.
So, to answer you, Riot are not only balancing for pro play, If they wanted to make champions like Yi Trynda and Nasus viable in pro play these champions would have 70% winrates in gold for example. But at the same time, riot do not mind OVERNERFING for pro play reasons resulting in champions being straight up unplayable by the average player (cases like akali and aatrox)