If this were to somehow pass the airlines could just take it to court and win, hasnt there been several cases in the last few decades of someone trying to force the airline to do something and the case has always failed due to deregulation and airlines are free to price their product as they see fit.
Congress should not restrict airline fees the same way they can't restrict how much Starbucks charges for a cup of coffee. Don't like the fee? Don't check a bag, don't fly the airline, or fly an airline that doesn't charge a fee.
This is capitalism, not communism. The government has no business telling a private company what they can charge for a product.