TMP went ridiculously over budget. While being a box office success, it wasn't well received by critics. I don't think they wanted to take risks with this one. So they cut the budget and pushed Roddenberry out of direct control. The Enterprise sets were already standing, so they didn't have a lot to do there.
And really, they made it on the cheap. Most of the action takes place on the Enterprise, Reliant and Regula. Reliant is just a redressed Enterprise set. The biggest new sets were Regula (both the station and the cave). The few other sets were pretty small, corridors at Starfleet (the simulator was actually the enterprise set) and Kirks apartment.
And besides the main seven characters, there were only four major guest characters (Khan, Carol, David and Saavik, six if you count Terrell and Joachim), and only one of the was a really big name actor at the time.
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