It's a really understandable change to make, for people outside of the US. The problem is largely with tethering the device to a PC and using it for a free broadband connection. Amazon are the ones picking up the bill, and it's surprising they've taken this long.
BlackBerry had to do the same thing over here - after they audited the service after years of 'free for all', at the end the numbers were pretty straight forward : 95% of bandwidth use was the result of <5% of the active user base (iirc they later confirmed it was more like 98%).
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