Multiple possibilities, but don't know for sure. Bad radio installed? Bad SIM card? Account isn't properly provisioned for LTE?
All I do know is that if you are on a tiered plan, you should not get throttled. . . ever.
As far as AT&T is concerned, throttling would only make sense on unlimited plans, as they are trying (though they will not admit it and come up with some BS about making sure everyone has quality access to the network, blah, blah, blah...) to make your data use so unbearably slow and useless that you switch to a tiered plan.
In fact, throttling tiered users would fly completely in the face of the point of tiered plans from their perspective, which is to make more money. They would want you to have as fast a data speed as possible in the hopes that you would burn through your allotted monthly amount so that they could start charging you by the GB. They would not want slow you down to nearly unusable speeds so that it would be virtually impossible for you to bump over into the next GB.
I'm not saying that a person on a tiered plan couldn't get throttled, but it is highly likely that it would only be due to a mistake somewhere in their system/account.
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