I never believed that the plotted film itself was a significant part of the NRE, but it’s something that is easy to explain. It’s all the small things that add up, From the person taking in your order and data transfer (I once had a design on floppy disk that I brought to a local PCB manufacturer), some checking of the gerber files and up to packaging and shipping at the end, and all those little things add up, especially for small orders.
And a part of the NRE is simply delegated to the customer. Instead of talking to someone on the phone or reading your mail, you use the internet to upload your files, set all the production properties and use their online gerber viewer to check for incompatibilities. That already eliminates a lot of human labor on their side.
And of course economy of scale is a part of it. From bath processing and automatic nesting of PCB’s from lots of customers on a single big panel, to multiple identical panels. For example Oshpak only does orders in multiples of three. That almost certainly means they have a big drilling machine that does three big panels at a time.
I don’t now how many PCB companies still make films, but it’s also common to have some kind of photo plotter that directly plots on the light sensitive material on the PCB. It probably also depends on their specialization. For big batches, making a film seems more appropriate, while for one-offs direct printing is more economical.
For more info, there are quite a lot of factory tours on youtube (Eurocircuits, PCBway, JLCpcb and probably many more)
Another source of more info is http://www.magazines007.com/pdf/PCB007-Sep2022.pdf It’s a magazine about PCB production, and it’s got advertisements from companies that make the stuff for real PCB factories, so it’s a sort of overview of the machines on the market.
From that magazine I found Altix, which makes direct PCB printers. Please don’t ask me why all those corporate video’s are so horrible, I suggest you skip the first 30 seconds and turn the sound of. Altix: Adix SA duo | The Latest in Direct Imaging - YouTube