It wasn't like IA people woke up one day and decided to give publishers the middle finger because they felt like it. Trump had declared a national emergency due to COVID-19, under the guise of which Biden later tried to forgive hundreds of billions of dollars of student loans because he felt like it. Libraries were shut down and inaccessible to a lot of people during pandemic lockdowns. The NEL involved loaning people DRM'd books, not giving them out without controls. NEL also offered an email address copyright holders could contact to remove their content from the NEL; granted, visibility into that process wasn't great, but if you're a publisher or make a living as a self-published author and you aren't keeping tabs on major book-related news, isn't that on you?
IA's lending library is made up of scans. No casual reader wants to read scanned digital books.
I don't know what overtures were made to the publishers who ended up suing in part over the NEL (the lawsuits were more over digital lending of format-shifted works not specific to the NEL), but IA didn't try to blindside publishers in general. They had extensive dialogue with university presses, documented here: https://blog.archive.org/2020/04/27/forging-a-cooperative-pa...