For PS4 controller, you have plenty of buttons. There are 8 sets of cross hotbars total. Pressing R1 switches between them to the next one you have actions set to. I only use 2 sets for combat (32 buttons total) because if you use more than 2, you would have to press R1 twice sometimes to reach a specific set, which causes a bigger delay between your actions. But by only having 2 sets for combat, you only have to press R1 once to get to any of the 2 sets you need since you are only using 2. Each set has 16 slots. 8 on left side and 8 on right side. The 8 on each side is mapped to the d-pad and face buttons of controller. Holding L2 brings up the left 8, and holding R2 brings up the right 8.

I have sets 4 through 8 filled with out of combat stuff such as buttons to instantly change class with a single press of said button, and numerous main commands, a mount, some emotes, etc. I have character configurations settings set so that when my weapon/tool is drawn only the sets I have as my combat sets will display and are the only ones that can be cycled between. While weapon/tool is sheathed, only sets 4 through 8 are active, which are my out of battle actions. I use sets 3 and 4 as combat sets for PVP, and I would go into character config when I wanted to do PVP and check boxes 3 and 4 while unchecking 1 and 2.