Mods are only a factor of an rpg or PW. Stone nailed it. It's the hammers and the nails required to invent, tweak, construct, regulate, test, and start the PW up. Then, there's the support and management of the world.
It will never be. If you're chasing a PW just go ahead and imagine a world building field of dreams. It can be in any category on any level, even 1x1. My earlier comment about cliques and inequality is one of larger prejudices why things don't turn out well. Then, there's this
On the flip side, control is a heavy responsibility. It's a lot of work to run a PW, and for what? Might as well just make an RP like mine at that point.