Originally, the forge wasn't meant to be anything bigger than "moving a few weapons and spawns around." When Bungie realized the opportunities for forge, they jumped on a new sandbox design known as Foundry to give players the freedom to create whole new maps from virtually nothing.
Later, of course, came Sandbox which blew up into the ultimate forging environment.
In fact, if I recall, Forge was an idea that was thrown in at the last minute and almost didn't make it into the final game.
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