> If a telemarketeer has to pay for setting up a call, rather than the end-user for accepting it (no matter how small the charge is), then placing millions of automated calls all over a sudden start costing money to the marketeer

They do have to pay money; initiating a call isn't free.

The receiver has to pay a tiny amount of money if they're not on an unlimited plan, but it's so small that it's not worth considering separately from the annoyance of receiving these calls in the first place.