Building a car is so hard. And Google mostly sucks at hardware manufacturing. There are good reasons why their market share of Chromebooks, Android phones, etc. is vanishingly small.
The koala cars may not have been successful but that was many years ago, years that could have been spent making something better.
Are you following the car industry? Car startups get crushed regularly, and almost non are successful. Pretty much all of them bleed money like crazy.
Tesla went almost bankrupt over and over again.
The counter point could be that the technology is there, but the regulation is not.
Why must everything be retrofitted versus a complete system overhaul? The initial costs may be immense but the return on investment will be far greater.
Just my two cents.
The actual car companies also outsource lot of stuff to other manufactures e.g lights, wires etc. I would imagine understanding and maintaining those relations woulds also be a hassle for Google instead its just better a car companies does all that.
The idea that they believe it will never be more then Level 2 is factually wrong. You might believe that, but they don't.
Maybe just retrofitting off the shelf cars made sense if they thought they needed hundreds of thousands of cars ASAP, but it turns out they would have had plenty of time to develop the car and even build factories for it while waiting for the technology to mature. And they didn't really need to partner with any manufacturers just to retrofit existing cars anyway.