The situation you've just described has nothing to do with the topic at hand. This article is a discussion regarding data consumption caps not bandwidth caps. They are not in any way related.
User 1 would never get 99% of the total bandwidth available because Comcast does not offer packages and services that enable that capability. There's a reason that each user has tiered packages of 10/15/20/25/30 mbps bandwidths.
Limiting the consumption of monthly data to 250 GB does absolutely nothing to stop bandwidth consumption during peak hours and in fact penalizes users who consume data outside of peak hours (thus not contributing to congestion).