Realistically, wait for people to tell on themselves (and they will), seize their devices and issue fines. Also as likely, bust people for a different crime then search their devices, and add fines onto whatever the original charge was.
Theoretically, there are other options on the table, none of which are great. They could subpoena the VPN providers, but most would pull out of brazil rather than betraying their clients. They could create a honey pot VPN service, and get the suckers that sign up. They could outlaw VPN services with exit points outside of the country, and then bust anyone using a VPN that didn’t comply.
Most failures of VPN products happen at the consumers computer, stupid stuff like not deleting tracking cookies, not using the VPN for all traffic, etc.
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