VPN's aren't specifically that safe alone. Usage of them to bypass bandwidth restrictions could possibly be made illegal, and like I said in the sentence before, you can't just hide behind one. But i'm sure if net neutrality was repealed, illegal services would probably start popping up. Also the thing that scares me the most would be the fact that ISP's could monitor your traffic and receive info about things that you do on the internet and monitor and charge access to them accordingly.