Someone has to pay for a textbook to be created. Often, the way the textbooks are created now is either through institutional grants or through the universities themselves.
There is also a branch of study called open pedagogy where they work with the students to create the textbook themselves.
When people talk about the $9 million, we hear publishers say, “Well, we just lost $9 million,” but the rate of inflation of textbooks has outstripped the cost of any student's feasible responsibility. We're looking at textbook costs that are over $1,000 per textbook, and that's one textbook for one course for one term. These costs are just unreasonable.