You know what they should do to fix spam? Instead of making it illegal to send, which isn’t much of a threat given how cheaply, anonymously, and in such vast amounts it can be sent…
… they should outlaw people who buy stuff based on Spam emails! It’s genius! Think about it, you get an email telling you about the latest greatest best weight loss supplement, and you go buy something from their site… and you’ve just committed a crime.
Publicize that fact a lot, and suddenly spam isn’t profitable any more, regardless of the volume you can send. Everyone wins!