There is something that they could do to make it even easier for Controller users, and that is to set which Cross Hotbars get cycled when you tap R1. This would essentially allow you to fill up ~3 hotbars with strictly battle actions while still maintaining a single tap R1 cycle and using the extended hotbars to access the 3rd set. You could then make a 4th set with all of the more generic actions such as Mounting, teleporting, and Returning.