Munkres' notation is perhaps a bit confusing.
Given a set $X$ and a collection $\mathscr B$ of subsets of $X$, we define the collection $\mathscr T (\mathscr B)$ of subsets of $X$ generated by $\mathscr B$ via
$U \in \mathscr T (\mathscr B)$ if and only if for each $x \in U$ there exists $B \in \mathscr B$ such that $x \in B \subset U$.
Clearly $\mathscr B \subset \mathscr T (\mathscr B)$. When is $\mathscr T (\mathscr B)$ a topology on $X$?
In the definition at the beginning of §13 Munkres introduces the concept of a basis for a topology on a set $X$. This is a collection $\mathscr B$ of subsets of $X$ such that
- For each $x \in X$, there is at least one basis element $B$ containing $x$.
- If $x$ belongs to the intersection of two basis elements $B_1$ and $B_2$, then there is a basis element $B_3$ containing $x$ such that $B_3 \subset B_1 \cap B_2$.
Note that $X$ is just a set, it does not yet have a topology. Thus basis for a topology on $X$ does not mean that we are given a topology on $X$, but Munkres shows that $\mathscr T (\mathscr B)$ is a topology on $X$. Thus $\mathscr T (\mathscr B)$ is the topology generated by the basis $\mathscr B$.
It is moreover easy to see that the above conditions 1. and 2. are not only sufficient, but also necessary for $\mathscr T (\mathscr B)$ being a topology.
In Lemma 13.1 Munkres gives an alternative characterization of the topology $\mathscr T (\mathscr B)$; it is the set of all unions of elements of $\mathscr B$.
This shows in particular that $\mathscr T(\mathscr B)$ is the coarsest topology on $X$ containing $\mathscr B$ since each topology $\mathscr T$ contains all unions of members of $\mathscr T$.
However, Munkres' formulation of Lemma 13.1 may be misleading because it states "let $\mathscr B$ be a basis for a topology $\mathscr T$ on $X$". This seems to indicate that we are given a topology $\mathscr T$ on $X$, but this is not the case. Munkres should have better said
Let $X$ be a set; let $\mathscr B$ be a basis for a topology on $X$. Then the topology $\mathscr T (\mathscr B)$ generated by $\mathscr B$ equals the collection of all unions of elements of $\mathscr B$.
After that Munkres writes
We have described in two different ways how to go from a basis to the topology it generates. Sometimes we need to go in the reverse direction, from a topology to a basis generating it. Here is one way of obtaining a basis for a given topology; we shall use it frequently.
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Lemma 13.2. Let $X$ be a topological space. Suppose that $\mathscr C$ is a collection of open sets of $X$ such that for each open set $U$ of $X$ and each $x$ in $U$, there is an element $C$ of $\mathscr C$ such that $x \in C \subset U$. Then $\mathscr C$ is a basis for the topology of $X$.
In this lemma "the topology of $X$" is of course the given topology on the topological space $X$.
Thus I would say that Munkres actually has two different concepts of "basis":
A basis $\mathscr B$ for a topology on a set $X$. In this case no topology is given, but $\mathscr B$ generates one.
A basis $\mathscr C$ for a topological space $X$. In this case a topology $\mathscr T$ is given on the set $X$ and $\mathscr C$ is required to be a subset of $\mathscr T$ satisfying the following condition:
For each $U \in \mathscr T$ and each $x \in U$ there exists an element $C \in \mathscr C$ such that $x \in C \subset U$.
In Lemma 13.2 Munkres shows that if $\mathscr C$ is a basis for a topological space $X$ with given topology $\mathscr T$, then $\mathscr C$ is a basis for a topology on $X$ and $\mathscr T (\mathscr C) = \mathscr T$.
Note that the condition characterizing a basis for a topological space seems to be weaker than the two conditions characterizing a basis for a topology on a set; but the essential point is the requirement $\mathscr C \subset \mathscr T$.
In fact, a basis of a topological space allows to represent each open set as a union of elements of the basis.