Before the Bulgarian Maks flooded onto the market, most of the 9X18 were Russian or German. Russian ammo was only available in steel cased 120 gr slugs that chronoed closer to 1100 fps or better.
When SAAMIset the standard for the 9X18, they used the less well built pistols like the FEG. In order to keep the lower quality pistols damage and KB's, the current limits were set.
Early on, since the Russian ammo was steel and the only game in town, many reloader of the cartridge cut down 9mm Luger cases for loading as 9X18. Many of the reloaders with Russian and German Maks loaded well in excess of the then Nonexistent SAAMI max, and still do.