I understand what you are saying. Let me explain how I think this is working. It’s not the most refined way and there’s no rhyme or reason to why Bethesda did it this way.
Right, that's a workaround involving other equips though like I mentioned earlier. People want to just hit one button to equip two weapons that they select without needing any workaround, end of story. It would just make things far easier. They don't want to be hitting 3-4 different keys to have to do it and they don't want to have to memorize what order they did things in so that it doesn't screw up in the middle of combat while they're worried about managing shouts/magic/weapons/etc. The way Bethesda implemented it was to accommodate gamepads but having used a gamepad with the game myself just for kicks, it doesn't work very well there either IMO.
Speaking of which, anyone know if there are Control 1-9 shortcuts or something? Having just 1-8 is really limiting and my favorites menu is bloated from all of silly dragon shouts and etc.
Playing: Risk of Rain 2, Jedi Fallen Order, Last of Us II
Watching: Tenet, Peninsula, The Pale Door