I imagine a fine for egregious patents could also be implemented. If your patent is demonstrated in court to lack standing, the civil liability is on you, not the patent office.
The hard reality is that nobody actually knows a priori what innovation is. Or how much an innovation is actually worth. If you removed patents that would pretty easily and trivially stop the spam.
Lower cost = more patents = more patent trolls = less innovation.
While I sympathize with folks calling for weaker patents as an alternative solution, I think that's a non-starter given the power of entrenched interests.
If this were easily fixed, it would be fixed by now.
Best approach might be some OSS patent collective driven by community contributions and a legal team that heavily leverages things like AI to drive down costs. Even then, a big, well funded corp could just drain the coffers with a single, expensive legal battle.
The problem is the size difference between the applicants, and just saying "charge by their income" wouldn't help when a shell company with no income applies.