Typically speaking, outside of farming, your ideal situation is always one DPS servant + two servants buffing him (maybe three, with a plugsuit). You can't always do this, of course (nodes with multiple classes, for example), but since Hero Creation is a single-target skill, you will get the most mileage out of Merlin when you can be relying on a single damage-dealer.
He's considered game-breaking because (a) a Buster/crit-focused servant can do NP levels of damage with normal cards, and (b) especially with a DPS/Merlin/support Merlin setup, he completely breaks the balance between servants who have Buster NPs and those who don't.
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