[gamepad] Only 4 Controllers?

Hi, I see the Gamepad API doesn't specify a limit to the number of
controllers 'navigator.getGamepads()' should return. In practice, Chrome
and Edge seem to return an array of 4 undefined values, limiting this
arbitrarily.

Should this be more explicit on the standard? Who should I be annoying
about this to prevent unneeded frustration in the future?