We create one. We, the community, discover which guns work well(in our opinion) and we use them. Exclusively. The problem is that we then refuse to branch out and try new things because we've become comfortable with what we consider the "best" options.
You want a change in the meta? Explore your options. Try new things out. I've recently been experimenting with Lord of Wolves, and I've found that it's a great gun, just as an example.
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No, Bungie creates the metas. We just discover them. No matter how much Bungie buffs and nerfs, some guns will always be better than others. Metas are inevitable regardless of what game one plays. A game could be perfectly balanced, but some weapons will still be better than others.