But they're not a bunch of "evil empires." This is Star Trek, not a George W. Bush State of the Union Address. The Romulans under Kamemor are a prime example of this, as are the Gorn. And that's to say nothing of the Tholians, who are implacably hostile yet understandably so, given what the Federation did to them in VAN.
It's a fine line to draw but I prefer to think of the Typhon Pact as an organization which is a collection of now much-better fleshed out species but ones which still have values diametrically opposed to the Federation. It's not a group of "villains" (Christopher and David Mack were very clear on that) but they don't consider the Federation's principles worth a hill of beans with rare exceptions.
I'd like to see it come together and no longer be, "And the Breen **** over their allies again this week" but I'd also like it to take a formal stand against the Feddie's values. Either that or remain hostile and become more benevolent.