True but modern powders are not loaded by volume. They're loaded by weight and and that's determined by case pressures that you'd rather not exceed for a particular firearm. Luger, when he developed the cartridge in 1901 obviously loaded it and designed the firearm for it at exceedingly higher pressures and velocity but not at +P pressures.
In 1902, the .38 needed a better powder but it was being used in older frames. It's size is based on that history, not the pressures of modern frames. A 100 year old .38 special can't be loaded with +P cartridges any more than a 100 year old Luger can handle a +P cartridge. Remember, regardless of how many grains required, you may not be coming anywhere near completely loading the case with powder.
I'm not a loader, that's the guy that's should have some knowledge. I'm still just guessing..