Because the cipher is supposed to be used sparingly, and for the players that didn't get the chance to earn seasonal exotics.
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it doesn't help get seasonal exotics, if you don't own shadowkeep, you can't use the cipher to buy the weapons. so, the cipher doesn't really make any sense unless it's main purpose is to cause fomo to buy shadowkeep.
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If you didn't buy shadow keep then the entire argument is invalid. The intention is for ppl who missed out on the seasonal exotics. If you are only playing the free version then you go to Xur. Get a high rolled random drop. Be happy with that. Or.. get shadow keep if you enjoy the game that much that you're already collected all available. Seems like the logical solution.
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I'm not playing the free version, just wanted to give a heads up that if you don't own shadowkeep you can't pick up erianas vow, symmetry, or devils ruin.