I guessing the real goal is getting a tax put in ISP's to cover the 'losses' of the RIAA.
By putting the over the top stuff about tracking all users and such, they can get some ISP's to go for their less difficult to implement fee per person. That wouldn't burden the ISP's to much, because if everybody has to charge the same fee there is no reason to switch ISP's to get around it.
There is a huge upside for the RIAA if they can get per person fees. It means they no longer have to go through the motions of stopping people from copying CD's, they can just sit back and collect checks forever.
Jay