That is the situation, the problem with that is: if Andretti/ Cadillac come in and do well enough to score 9th or 10th then either Williams or Haas get no money and likely go out of business. Whereas currently 10th place gives them just enough to stay alive
I suspect it actually means redistributing the season payouts over 11 teams instead of 10. Otherwise it would be impossible to fund the teams that come in 11.