I don't see any problem with buying one of the updates each year. Now before the deafening chorus of BOOOS... Let me explain. I don't see any problem with buying PRECISELY ONE of those every year. Of course if they only sold one the first year, there would be a change in policy or lack of future support. The latter is not desirable unless there is a good alternative.
If there is a large enough customer base to amortize the production cost (and apparently package #9 is quite popular), someone else will get in the market. There is no magic in making a mapping database. There are several standards and various data protocols to choose from among but unless they went to a lot of effort with secure encryption algorythms and the like, then any number of outfits have the technology to produce a functional disk. Most any of the GPS manufacturers has access to the technology and the updated map data. Sanitized (unclassified) map data is available at nominal cost from the DMA (Defense Mapping Agency) and other sources. Like the man in a recent commercial said, "This isn't rocket surgery!"
Still, I think the best suggestion I have heard is from Doc Evan. Toyota or the DVD supplier could sell the right for a buisness (fast food, auto parts, gas stations, whatever is of interest to motorists ... One Eye Charlie's Rattlesnake Emporium and Gift Shop on Historic Route 66, to be listed in the data base so a user can locate the buisnesses convenient to his route) For a chain franchise this is quite practical. If you don't cough up your $xxx dollars per year to fast food corporate intergalactic headquarters then your store isn't on the new list.
Anyway, like the good doctor said, a paper based directory could accompany the DVD and list businesses by various categories along with contact info if appropriate and whatever other embelishments are appropriate. There should be enough advertising revenue to give the DVD producer a good profit and get them off of the back of the DVD user.
Pat