A better villain or a better antagonist.
Notle was evil through and through and had problems sticking to the slow paced authority of the government or generally anyone who couldn't understand his greater goal.
He also was willing to sacrifice his own son, a fate never really shown in a film, most villains have some compassion towards their own family but nolte had none towards bruce.
unfortunately it was never shown but nolte was the bigger threat to banner and to the 'world' and he had to be nuked to be taken out while abomination was merely strangled.
roth had no personal involvement or history with banner it was all about the hulk, he was only there to get hit but he dished out more of the beating.
both didn't become real villains until the last act of the film (or superhero type villains) and this may play badly in both their favours since they both only had one true match up with the hulk.
I personally prefer nolte because his story and motivations are solid plus he also made fun of bruce 'Quit your balling, you low life piece of trash', best paternal line ever delivered.
ROth brought nothing new to the table, his impact was only just better than juggernauts in the last stand.