If I am an ISP, I have to pay some money to my upstream network provider in order to transfer data in and out at a certain speed for a certain ammount of data. This is reflected on the user by speed and data capping.
However, when two of my users want to communicate, they probably barely even touch my servers and it generally does not cost me anything to let someone, say, access a website their neighbours host from the same ISP.
As such, if I decide not to throttle or cap the network unless I have to, where it costs me more money, would I be in violation of Title II net neutrality? In order to stay compliant, will I have to start charging my customers for a service that is basically free to me, and actually takes more effort to regulate? And what happens when, say, netflix tries to buy a connection from me? Will I be compliant as long as I don't discriminate against who I give a connection to?