This is exactly it. 1.5% of users does not equal to 1.5% of CI/CD minutes. And such messaging isn't always dishonest. If you have 99 users using 100 minutes each and 1 user using 10 million minutes, setting the max limit to say 1000 is a net benefit for the system and its users, at the expense of the one outlier.
Yes, but in this case one user couldn't use 10 million minutes, they were already capped at 2000. Now they are capped at 400 instead. So that limits how extremely disproportionate the high percentile use could be. As I said, that 1.5% of users could have been using at most 1600 more minutes a month than the new max.