Used the windows installer, transferred files to my ubuntu box, tried to start up forge in a fresh directory as a headless server. I've done this before with no problems.
$ java -jar forge-1.13.2-25.0.48.jar
Missing library: libraries/net/minecraft/server/1.13.2/server-1.13.2-data.jar
Ubuntu:
java -version
java version "1.8.0_181"
Java(TM) SE Runtime Environment (build 1.8.0_181-b13)
Java HotSpot(TM) 64-Bit Server VM (build 25.181-b13, mixed mode)
Windows:
java -version
java version "1.8.0_181"
Java(TM) SE Runtime Environment (build 1.8.0_181-b13)
Java HotSpot(TM) 64-Bit Server VM (build 25.181-b13, mixed mode)
Went into the directory, confirmed the file didn't exist. Redownloaded in windows to a fresh directory, file still doesn't exist. Other files definitely do exist, like server-1.13.2-extra right next to it.
Installer log included as an attachment, but there are no errors inside that I could see.
forge-1.13.2-25.0.48-installer.jar.log.7z