Factories are trying to load acceptable ammunition at the lowest cost they can. Using non-canister powders is lower cost than using canister powders. The non-canister powders will arrive in drums with 50 or so pounds per drum. I'm not aware of any ammunition companies making their own powder at this point (in the US, at least). Even situations like Vista that has both ammunition companies and a powder company in the portfolio, it's not a given that the Alliant powders will be lower cost than some others, and they will go for the more economical, assuming ballistic performance is maintained.
Bullets, like the powder, are bought or made. They are bought, or made, in large quantities and the price per bullet will be less than we, as reloaders, will be able to buy them. Unless we're buying 50 - 100 thousand at a time. Then we can negotiate prices too.
Not all that many ammunition companies make there own cases either. Obviously, Winchester, Remington, Federal and CCI-Speer do, and some others, but many are buying their cases.
Then, of course, there are primers. Even fewer companies making primers than cases. Again, the ammo makers have some leverage by buying in large quantities.
So - first consideration is cost.
But, within that cost they are looking at reliable ballistics meeting the criteria initially set for that cartridge/bullet.
Each new lot of powder, being non-canister, must be tested to develop the load to be used in production. There was testing of powder samples before a quantity of powder was purchased.
While many will test ammunition in actual guns after developing the load in the pressure gun, there is no way the entire spectrum of models can be tested. They will use some of the more popular models. In semi-autos they are trying to ensure functional reliability and may use several different models.
Accuracy testing is more commonly from the pressure gun as it eliminates the additional variable of the shooter and whatever model gun is used.
They will try to deliver the ballistic performance at the lowest pressure they can. Sometimes that pressure is at SAAMI MAP. Others, preferably, will be comfortably lower.