Wow, let's make an easy thing really complicated and subject to many more possible errors.
Dump it all into a mixer, mix, apportion by volume. Simple.
You've still got to get the initial quantities right, and as Gainer points out, when you do it as you're suggesting, you're relying on factors that are hard to measure to get the proportions right, which makes QC more difficult. At least with each machine measuring precise quantities, it's easy to do QC checks along the way -- program the assembly line to dump only metol in the package once every 1,000 packages, then only hydroquinone in the next one, and so on, and pull those packages to check that they've got the right amounts.
Besides, as I say, lots of things are made in precisely this way. It may be more important that the ratio of, say, metol to hydroquinone is right in D-76 than it is that the ratio of filling to cake is right in a Twinkie, but this sort of manufacturing is a precise science. Check out some TV shows like "How It's Made" or "Modern Marvels" and you'll see examples.
I've never noticed the different chemicals in packaged developers, or lumps, or strata.
Presumably they either get mixed up in ordinary normal handling as the bags are sealed up, put in boxes, and shipped; or some station exists to deliberately mix the contents up.
Of course, we're both just speculating here. I for one am not trying to present a case that this is definitely how it's done; I'm just trying to present an alternative to your proposal, since you said you "...can not believe that the little 1 gallon packet of dry chemicals didn't come from some huge cement mixer...." Perhaps you still won't believe it, but IMHO, it's a perfectly plausible idea.
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not uncommon in industrial processes.