But relays do access management on the content though, be it implicit or explicit via NIP-42. So why would they not be controllers?
Anyway, all of this stuff is very tiresome. I honestly believe that the underlying problems/issues that cause these stupid laws everywhere can be adressed by Nostr in actuall practical ways.
Atleast, that is assuming these laws atleast have the intent to solve problems and not just be an excuse for controll. In any case Nostr fixes that problem as well