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or in extreme circumstances, where network congestion leads to potential denial of service for some customers, to reduce bandwidth allocations at an individual or a network level
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that part is scary, it seems to indicate its ok to have that kind of congestion and shaping is the necessary fix. This is what I dont like, if congestion is emulating a DOS before shaping then questions need to be asked.
Also heavy users are never going to cause that kind of congestion only overselling can, we have figures coming from isps where they say under %3 are heavy users and the other 97% are normal so tell me how %3 users can cause congestion to the level where it feels like a denial of service.