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Is it one of those two?
Remember, a connection can make many hops between point A and B. All of it effecting download speeds.
Different routs to different places.
1) your ISP
2) the download region selected
3) what is being downloaded
4) is it a patch
5) your anti-virus screwing it up
Steam downloads delta patches. That means only small change files are sent and then they are applied to the larger file locally. This reduces bandwidth usage. Check if your CPU and disk are being heavilyl utilized. If so, then your download issues arent really issues, its just steam waiting for the patching to finish.
Also note tha anti-virus progams are notorious for screwing up downloads