I'm pretty sure this is by design... a few years ago we hit issues where
grub was setting Ubuntu as the primary boot device in EFI automatically,
overriding user settings. For MAAS (for example, as this is where we
were most impacted), MAAS works better if Network is always the first
boot option.

What would happen is that we'd install via MAAS, then the Ubuntu option
would be injected and rewrite the EFI boot order and the machine was not
able to be PXE booted after that when you wanted to release and re-
deploy, because from that point onwards the machine would always boot
from HDD first due to the location of the Ubuntu option.

So I think this is probably by design, to avoid situations where
installing ubuntu overrides user defined boot order.  The presumption is
that if you set PXE to be the first boot device in BIOS, you probably
intend to always boot the machine via PXE, and if you want to vary that,
you'll trigger the boot menu to choose a temporary alternative.

Conversely, if you plan to mostly boot from ISO, you wouldn't want to
waste your time waiting on PXE to time out, so you'd have set the boot
order so that HDD/SSD comes first anyway.

At least, that is my recollection, and as I said, I do think this is
intended behaviour, but lets see if someone who manages Grub can comment
on this.  I'll escalate it to that team for visibility.

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https://bugs.launchpad.net/bugs/1968145

Title:
  Ubuntu won't change itself to first boot option in UEFI Boot Order
  after installing Ubuntu22.04

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