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Switching to download servers that are in countries on the other side of the world, actually can lead to great download speeds.
wouldn't that technically just mean that Steam decided that Toronto server should always be at a maximum congestion and not really upgrade it?
Its been YEARS of slow download speeds, at multiple households and ISPs. I only switched servers now.
I just switched to Toronto (I live in the Netherlands) and I get my max speed.
Another factor is that Toronto is a high density region and as such many users are likely to use it. Ottawa being home to basically literally nothing, will likely have less users on it. Of course that can be offset by the fact that lesser used regions may have lower bandwidth limits etc.
It makes more sense if you don't base your entire understanding off oversimplified assumptions.
There's lots of variables between your PC and a server. Mediocre speeds to one server isn't necessarily an issue with the server. Could be issues with your ISP and how it routes traffic. Or any number of things. "Closer should be better" is oversimplified, partly because you ignore how the Internet actually works, not everything is necessarily as the crow flies or the fewest hops. And you have no control over how traffic is ultimately routed and handled by all the intermediaries.
So it may not make sense according to what you imagine or assume. But that's more of a problem with your imagination and knowledge.
Think of it as an actual highway. There are multiple ways to get from where you are, to the destination and back, but the shortest route isn't always the fastest and there are many roads that can be taken. Each intersection is a "Node" on the internet and sometimes you run into traffic on the Nodes and that extends the overall trip.
So to get from point A , you need to go through B, C and D. Sometimes you are diverted and go to to B, E, F, C, D to get the destination.
The internet is a very complex way to send and receive information and sometimes going further out can be quicker then somewhere close, depending on the surround traffic.
Notice it or not while playing, it could be a factor.