I heard talks about this sort of thing now & again, but they always failed, since they realised in the end that it would be nearly impossible to enforce. For one thing, it will not stop spammers who use compromised PCs to spam. If fees came in, people would just use a free mail provider, at least one that would not enforce this.
For example, one of the e-mail providers I used around 1998 (going back ~12 years) decided to start charging a subscription on accounts. I switched to Yahoo, told all my contacts. Later on, Yahoo started charging for POP3/IMAP access, so I switched again.