I think some clarification is needed.
If a school doesn’t meet need, and they award “some” grants, and there still is a gap, they might throw in a merit scholarship for a student that they really want. But, there still may be the EFC that remains.
If a school gives a HUGE merit award and no need based grants, then the remaining costs could easily be less than some folks EFC.
Merit is usually applied first because it’s usually awarded by the Admissions office, not the FA office.
If a school meets need with grants, loans, and WS, then it might remove the loans and WS and award a merit scholarship in place.