Yep, that'd work. Isolate each button into a seperate page, each page the same size with the buttons possitioned identically. Make each button an Include, each with a numbered file name. Renumbering would swap button slots.
If yah really wanted to be a geek about it, you could probably setup a DataSource and listbox that would be fairly easy to edit. A DataSource would allow button names, commands and order to be edited all in 1 file. Downside is loss of variable icon, but even that might be possible. Stick a dropdown at the top to swap skill banks and you''re golden
It'd end up looking much like the Start Menu.