Your distinction between commercial use and things like meme culture doesn’t hold up. For example, memes can harm creators too, like Pepe the Frog being co-opted by far-right groups. If you want to protect creators, there’s no simple solution, as both can distort their intent.
Focused on “commercial” and while ignoring “political campaign, etc” misses the point. There is a difference between making up a new Chuck Norris fact and using the meme to support religion, brands, politics, or whatever.
Legal systems constantly deal with intangible abstracts like intent. “Pepe the Frog being co-opted” is cashing in on the existing work rather than operating in some hypothetical framework.