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The problem is now, and always will be that capping for congestion purposes will arbitrarily INCREASE congestion.
I saw on .com a long time back a post that explains why.
Essentially it was that when you cap for congestion, the congestion occurs in peak hours anyway.
If you try to cap this, then people who were leaving large downloads running 24/7 and exceeded the cap, start using the downloads only when they are around, i.e. peak hours. Therefore the usage will INCREASE during the hours when the system is most congested. Even if people are not exceeding the cap.
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