This is a strange concept, especially in historical context. Windows, for example, was always free to develop on unless you wanted to use MS’s tooling, in which case you could buy in a la carte or subscribe to MSDN. The owner of the device had a license to the technology and MS’s stack, and the developers licensed the developer tools if they chose to do so.
Even on iOS, the dev tools are cheap, and the device owner holds an iOS license. And the charge for distributing software is $0 — there is no charge for distributing software.
So what Apple really seems to be charging for is permission to charge money for iOS apps. And I think I’m with the EU here — Apple is gatekeeping and is charging something entirely unrelated to Apple’s costs.