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https://twitter.com/EdBeach23/status/1066731882786754561
anyone who likes to have everything, though people probably will only buy in a sale. Later people will but the inevitable complete edition, just like Civ V (you also get every system from G&K if you buy only BNW, btw)
I would imagine they also will never have R&F back at its original full price. (At least I would hope not)
Game balance is one of the major reasons they do this, I believe. To avoid balancing (and maintaining) two extra versions of the game for the second expansion, rather than just one. If it didn't include everything, there would be four versions of the game - vanilla, R&F, GS, and GS+R&F. Much more work.
Missing out civs, wonders, scenarios etc doesn't have the same effect.