Do judges count how it is intended to be used? If we are counting only use and not intended use, then this just means that if a bunch of pirates (or worse) are your initial users then you are in the wrong. That sounds absurd (though I could see a lot of people, in tech and otherwise, wanting to make Tor illegal because of one of its predominant uses). But if it is based on intention, it still doesn't differentiate between the technology being intended for legal use that may not different from illegal use, which is no less absurd. Consider a tool that allows pushing apps onto phones. It is intended primarily to allow apps to be pushed, but the tool has no way to check if the user pushing the app onto the phone has the legal right to push the app and the legal right to push software onto the phone in question.

It seems that making this a legal minefield that requires an existing well funded legal department is nothing short of regulatory capture.