The indie publishing industry has given birth to a cottage industry of folks providing promo services, much like the California gold rush gave birth to an industry of folks providing shovels, picks, and pans.
Some providers are more aggressive than others in drumming up business.
Personally, I don't label every person who contacts me for this purpose a spammer. If he/she mail merges me into a list of 1,000 authors, each of whom receives a form letter, then yeah, it's spam. Same with manually sending out a form letter.