Sure, technically anyone who creates something in tangible form is a "rightsholder". But the process for enforcing those rights is beyond most of us US citizens, rather like disputing a patent lawsuit is beyond most small companies. The costs of specialist attorneys put the enforcement beyond reach for all but the rich and large corporations. You called out the problem yourself with the "tricky balancing act". Balancing will require lawsuits, and almost nobody has the money for a lawsuit. So "rightsholders" becomes another word for "wealthy and large corporations".
