Modular arithmetic doesn't work exactly the same way as regular arithmetic.
Let's focus specifically on $\mod 9$. When you have expressions of the form $a \mod 9$, these expressions can evaluate to one of only 9 numbers: $$0,1,2,3,4,5,6,7,8$$ How do we find the value of an expression like $a \mod 9$? The value of $a \mod 9$ is the remainder you get when you divide $a$ by $9$. For example, $12 \mod 9$ is $3$ because $12 \div 9$ is $1$ with a remainder of $3$.
Another, more common, way of writing this fact is $3 \equiv 12 \mod 9$. We read this as "three is congruent to 12 modulo 9." Note that we can also write it as $12 \equiv 3 \mod 9$. They are two slightly different ways of saying exactly the same thing. The two different ways are really just slightly different ways of asking the same thing:
$$12 \equiv x \mod 9 \qquad\qquad \text{Solve for $x$}$$
$$x \equiv 12 \mod 9 \qquad\qquad \text{Solve for $x$}$$
I believe the first way is more common. It's understood that when we say "solve for $x$ if $12 \equiv x \mod 9$" (that is, when we say "$12$ is congruent to what number $x$ modulo 9?"), that we implicitly want $x$ to be one of the numbers $0,1,2,3,4,5,6,7,8$.
For your specific questions:
Isn't $4^{-1} = ¼ \neq 7$? Or does the « in $mod$ $9$ » affect the result in a way that wasn't explained?
In $\Bbb Z_9$, $4^{-1}$ is the number $x$ such that $4x \equiv 1 \mod 9$. Note that this is equivalent to saying $1 \equiv 4x \mod 9$. This means that when we divide $4x$ by $9$, we get a remainder of $1$. Therefore $4x$ must be $1$ larger than a multiple of $9$. Since $x$ must be one of $0,1,2,3,4,5,6,7,8$, then we must ask ourselves, "what number is divisible by $4$, is one larger than a multiple of $9$, and gives me one of $0,1,2,3,4,5,6,7,8$ when I divide it by $4$?" The answer is $28$, because $28 = 27 + 1$ and $28/4 = 7$. Therefore $7 = 4^{-1}$ in $\Bbb Z_9$.
Another way to find a modular inverse, especially if the set is small enough (which $\Bbb Z_9$ certainly is), is to just do trial and error. We want $x$ such that $4x \equiv 1 \mod 9$, and we know $x$ must be one of $0,1,2,3,4,5,6,7,8$. So we can just check these values one-by-one, and we'll see that $7$ is the only one that works.
How does $28 = 1$ $mod$ $9$ ? Isn't $1$ $mod$ $9 = 1 \neq 28$ ?
$28 \equiv 1 \mod 9$ because $28$ is $1$ more than a multiple of $9$. ($27$ is the relevant multiple of $9$ here.)
$1 \equiv 1 \mod 9$ because $1$ is $1$ more than a multiple of $9$. ($0$ is the relevant multiple of $9$ here.)
Saying two different numbers (in this case, 28 and 1) are congruent to the same number (in this case, 1) modulo $9$ (or modulo any other number) is not the same thing as saying those two numbers are the same number. In fact, there are infinitely many numbers congruent to $1 \mod 9$. Specifically, they are $1, 10, 19, 28, 37, 46, 55, 64, \dots$. Note that negative numbers can also be congruent to $1 \mod 9$, like $-8, -17, -26, \dots$. All these negative numbers are $1$ larger than some multiple of $9$ (e.g., $-17 = -18 + 1 = 9 \cdot(-2) + 1$).