Bruce, the "correct" way to adjust your regulator is to send it to Aeroelectric, (I usually recommend AeroTech in Louisville,) or whoever you like to use, and have it calibrated on the bench.
The "shade tree" way to do it (which most of us prefer) is to do it at home ourselves.

When your ammeter is used, you should realize it's not a calibrated
gauge and may be off considerably. But if you wish to use it, here's how.
Firstly, the ammeter doesn't measure output from the gen. It measures input into the battery. If your battery needs 30A over a 2 hour period, but you only have a 25A gen/reg system, then it'll show 25A (assuming no other device is turned on) for something longer than 2 hours before it tapers down. (That's not exactly the case, but it's an illustration that works in this instance. Otherwise I'd have to get into amp/hour rates etc., and this forum is too limited for that treatise. Come to the convention seminar.)

But, keep in mind that the ammeter is only telling you the relative amount of charging rate your battery is accepting. That equals the EXCESS amount your gen/reg can generate that your other accy's aren't using.
So, with no accessories on, the positive reading on the amp gauge is the battery charging rate. (Sounds like your system is currently regulated down to a maximum of 15A output capability, IF your battery is healthy. If your bat is damaged, it may request a continual charge even tho' it's not storing it. Such condition will skew this method of testing/adjustment....you're back to sending the unit out.)
With a healthy 25A charging system, adding accessories to that should act like this: Adding a 5 A load will not affect the 15 A batt charge rate you've been seeing because the 15A bat-chg rate, plus 5A load still only equals 20A. Adding another 5A load also will not affect the 15A chg rate you originally saw because you are now only asking for your gen's max 25A capability. Adding another 5 A load will drop your ammeter's indication to 10A bat chg rate because you're now asking for 30A from a 25A system, and that last 5A accy is stealing pwr from any excess gernerated capability available for battery charging. In other words, the generator will attempt to supply al accy's with pwr FIRST...and any left-over capability will go to the battery....IF....IF...it needs any recharging. This is why the aircraft's ammeter is such a lousy test-bench to adjust a regulator. You really have no idea of the needs of your battery until it is fully charged, and the ammeter drops completely off to Zero. (And a damaged battery may never let it do that.)
Adjusting a regulator requires adjusting the screws that manage spring tensions (or on cheaper regulators actually bending the tabs the springs hang onto). The seminar will address these methods at Tehachipi.
If you can get a fully discharged battery, get the engine propped to start it, and turn the system on with NO accys on, then you should see 25A charge rate from your 25A system. Anything less than that, with a completely discharged but otherwise healthy battery (no shorts, no damaged plates, etc.) means the regulator isn't asking for full output from the generator. Caution: It's possible to adjust a regulator to request too much from a generator. Do that for long and you'll be buying another generator. That's why it's OK to use a 20 A reg on a 35A gen, but not a 35 A reg on a 20A gen.
BTW,...with regards to indicated voltages....as the system starts charging a discharged battery the voltage reading should be about 12.4 V or slightly more. AS the batt begins to fill up the voltage will climb up to 13.2-14.2 Volts. At this time the ammeter should be indicating only a few amps positive. When the Ammeter reads zero, the voltage should hover around 13.6 or so. If you see more than 14.5 your regulator is allowing too much/unnecessary voltage rise and your battery will need frequent servicing of water.
Hope this helped.