This file really belongs in the runtime1 package of daffodil-core.
While at it, it could be renamed to VariableMapFactory.scala, as that's what it defines
(The VariableMap data structure itself is part of daffodil-runtime1)
This ticket is just a reminder on this issue. Not moving file now, because work is simultaneously ongoing on reimplementing variables, and to preserve diff capability while that is underway, moving files around is discouraged.