It was all about floppies in the day. Pirates would link up at some location and copy disks - it was a real social occasion. This was before it was feasible to do such things online. However, it doesn't take much, since I can recall pirate boards once 2400 baud became common.
Before floppies, there were the card wallopers - yes, piracy even took place with punched cards. I think piracy started five minutes after the first company came out and started charging cash for software.
Cartridges were pirated - and I can recall "50 game" cartridges, since almost all cartridges were based on some kind of PROM or EPROM that could be cloned. Hard core pirates eve figured out how to read out Shadow Mask ROM and pirated those things.
No measures Congress, or any government, has ever taken, has served to curb "piracy". In Canada, they tried putting an anti-piracy tax on "media", mostly CD-Rs, and that failed because the pirates weren't really using CD-Rs, but had already set up their sites on the Internet.
I think the best way to discourage piracy is to have software that is reasonably priced. I also think that "free for non-commercial use" is a good policy, because really, my workplace can afford to pay for the massive install of Office, but why should I shell out $300 for Office to edit or view, what, two or three documents a month at home?
In the end, anything Congress does will be circumvented by the pirates in the matter of moments. With the availability of ultra large SD chips of 64GGB and 128GB - I can entirely see that being an easy way to pirate pretty much anything. It would be just like the old days of "software trading", but without a pile of floppies.
Really, I think Congress needs to start working on the real problems that the nation faces, because the War On Piracy will end up being as much of a fail as the War On Drugs, War On Poverty, War On Illegal Immigrants, and so on.