Yes, it’s a developer decision if a game is easy to mod or not. Modding is just editing game files. How easy that is for a user is up to developers. They can make the code harder to interact with or not. Sometimes though it requires extra effort to make a game in a way that’s easy to mod, which is why devs don’t always do it.
Another thing though that can massively decide how easy a game is to mod is modding tools. Official tools make modding games much much easier, but again it’s up to the devs whether to release those tools.
Again though, this is often extra work as the official tools they use to create the game are proprietary and can’t be released, so they have to make custom watered down versions to release for modders.
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