Yes, I fully agree. Two is good. It's easy to come up with a second special for each slot for most of the cast (
and I have), but trying to come up with a full 12 is excessive for characters like the Ice Climbers who barely do anything in their singular game. Another option would be to go more free form entirely and have an inequal number of specials per character. Dissidia and a lot of Dragon Ball fighting games tend to do stuff like that with their special moves. Characters have a certain number of attacks that you can assign to any special slot and some characters have more than others as befits their character or playstyle. This might be the only way to go with them having introduced characters like Terry or Kazuya which have unique specials or just too many moves (or kind of no specials in Min Min's case where the special button mostly just serves as her normal attacks on her other arm). The arguments I've heard against this is that some attacks are designed as side specials or down specials etc, and that is true, but it's not universally true. There are attacks that deviate from what their typical attack type usually is. Like Peach's neutral being a counter or Ness and the Belmonts having virtually the same attack (PK Fire/Holy Water) mapped to different buttons. I think attacks could still be designed as a neutral special or a side special and but still be freely assignable to a list. And, hey, if I want to assign a recovery to my down special, why not let the player have that choice (some characters like Meta Knight already do that, in fact!).