Gary,
You are correct. It is confusing because you are not seeing the other component in the equation, the powder load. The proof houses had an agreed upon powder charge of black powder that was used. Even various lots of black powder could vary (for the stringent requirements of proof), so they would test the lots to determine how much powder would equal their normal proof load. Here are several devices for testing powder, from the Liege proof house dating from the 18th and 19th century.

Confusion came in with the advent of smokeless, nitro, powder. There was a brief period when various smokeless powders could be chosen for proofing a firearm. Eventually they centered their load development on pressure. Again, an early device from Liege. This 1895 device uses the crusher method.

The above are from Claude Gaier's "
L'Epreuve des armes à feu à Liège, 1672-1972"
Pete