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There's no way they can police who downloads form Rapidshare. The only way they can is to shut down Rapidshare all together. Millions upon millions of people download from there each day. Could rapidshare find all the IP's of people who download specific files? Sure, probably. But when there are literally thousands of differently uploaded files for one specific file on Rapidshare that could be an extremely daunting task that will likely never end. Not to mntion there's no way of knowing a file named 00856familypictures.rar is actually The Godfather. God knows how many of those files are on there. RS won't go searching through all these files to find pirated content.
They do their best to remove files from Rapidshare as quickly as they possibly can, but as far as getting busted for downloading from there? No way. only other way besides shutting down Rapidshare is if ISP's block sites like Rapidshare from their service. That would be the easiest way. But then there's the whole "It's not meant for piracy" argument and what not. Plus the moment it shuts down or what have you there will be another one to take its place immediately.
Rapidshare is far too large to be policed properly. The only solutions to stop stuff from there is to shut it down or ISP's block it. I can't imagine any other way to prevent RS piracy