The burn rate of a powder, from the standpoint of the manufacturer, is one of a number of properties that affect the burning characteristics of a particular formulation and is a useful control for keeping canister grade powders for handloaders consistent enough for published load data to be applicable to them. It is tested by burning a standard weight of powder ignited by a standard weight of PETN in a large chamber and is given in liters per second of powder burned, IIRC. However, if you used burn rate to compare two different powder formulations, it wouldn't tell you that the same charge weight would perform the same way with the same set of other components. Burn rate only does that for different lots of the same powder formulation. This is because even if a different formulation has the same burn rate, it can have a different chemical potential energy content that could drive pressure up if loaded to the same charge weight, or a different progressivity rate that could cause it to peak at a different point the bullet's travel down the bore.
So, to figure out a way to compare what same charge weights of different powder formulations would produce by way of pressure with the same set of other components, they came up with the relative burn rate. They pick a cartridge and bullet and case and primer and load the same charge weight of different powders into it, then rank the powders by peak pressure produced from highest to lowest. An example in detail is given in the 2013 Norma data book. Obviously, the fastest shotgun and pistol powders would create destruction in the pressure gun doing this with a rifle cartridge, so they must change the charge weight or cartridge details at some point in the process and likely overlap the fastest rifle powder tested into the protocol change for comparison. But this is the basic method used for relative burn rate. One of the drawbacks to it is because of the differences in the powder burning characteristics, if you did the same comparison in a different cartridge or even just changed bullet weights, the order of the ranking will shuffle around a little. Usually it is just by a few rank positions, but it means you can't rely on relative burn rate to be exactly the same in your gun with your components as it is in a chart, so it really only gives you a vague idea of what to expect.