The worst possible interpretation of this policy is, "AT&T is now charging $2/mo extra for land line service". I don't like that, but it doesn't sound criminal.
It's not a customer friendly policy, as it just serves to squeeze $2 from customers who aren't using more services. But it's not criminal to add a service fee(as much as I hate it as well).
It's a cost that can't be quantified to the customer. Why not just jack the monthly cost instead of tacking on a ghost charge?