Why should they pay for a licence? Once a technology reaches such ubiquity, there's a strong case for it being part of the technical infrastructure of that society. To me, that means that governments have a responsibility to ensure that the technology is widely available, and arbitrarily locking it behind commercial licences does not help achieve that. To the extent that patents and licensing provide an incentive to develop such technology, it's beholden on governments to foot the R&D bill in some other way.