Compare this to some of the early non bank switched games where the all sprites fit entirely in memory, with some creative tweaks (bushes are recolored clouds, etc).
It's a bit myopic of Nintendo that on-cartridge mappers had to be necessary, but on the other hand, it's early 80's consumer hardware; it was probably state of the art in the late 70's ... which makes it hilarious that Wario's Woods was released in 1994.