It seems my fix may be to set CopyToPublishDirectory to true in my project file.

  <ItemGroup>
    <Content Update="modules\_protected\EPiServer.Forms\Forms.config">
      <CopyToOutputDirectory>Always</CopyToOutputDirectory>
      <CopyToPublishDirectory>Always</CopyToPublishDirectory>
    </Content>
  </ItemGroup>

This is still less than ideal since it is masking a bug in the package - I think the correct move is for the package to be updated to set copyToOuput to false in the nuspec

    <contentFiles>
      <files include="any/any/modules/_protected/EPiServer.Forms/Forms.config" buildAction="None" copyToOutput="false" />
      <files include="any/any/modules/_protected/EPiServer.Forms/EPiServer.Forms.zip" buildAction="None" copyToOutput="true" />
    </contentFiles>

Thanks let us try this.