If the question is one of the flexibility of SAM's rotation, virtually all problems could be fixed by simply adding a second charge to tsubame. If the devs were worried about SAM having too much damage from gaining an additional use of tsubame over the course of the fight due to having an extra charge, they could simply lower the potency of an ogcd/weaponskill to compensate, e.g. 10 potency off Hakaze or some such.