Your proposal is not realistic:

1. There is no authority to make such a decision.

2. Who would control this?

3. What to do with authors who are really productive at a high level (with high quality)?

4. What to do with groups who are working together in large projects ("big science", e.g. in high-energy physics)? When there are 100 or even 1000 or more collaborators - would you allow them to publish only one paper per year as a group? Or would you allow to publish one paper per co-author per year, i.e. 100 or 1000 papers?

There are more reasons why this would not work.