Breakdowns ??

15.6 OTHER PLAYERS

(a) After a tackle, all other players must be on their feet when they play the ball. Players are on their feet if no other part of their body is supported by the ground or players on the ground.
Sanction: Penalty kick  

Exception: Ball goes into the in-goal. After a tackle near the goal line, if the ball has been released and has gone into the in-goal any player, including a player on the ground, may ground the ball.

(b) After a tackle any players on their feet may attempt to gain possession by taking the ball from the ball carrier’s possession.

(c) Players in opposition to the ball carrier who remain on their feet who bring the ball carrier to ground so that the player is tackled must release the ball and the ball carrier. Those players may then play the ball providing they are on their feet and do so from behind the ball and from directly behind the tackled player or a tackler closest to those players’ goal line.
Sanction: Penalty kick

(d) At a tackle or near to a tackle, other players who play the ball must do so from behind the ball and from directly behind the tackled player or the tackler closest to those players’ goal line.
Sanction: Penalty kick 

(e) Any player who gains possession of the ball at the tackle must play the ball immediately by moving away or passing or kicking the ball.
Sanction: Penalty kick

(f) Any player who first gains possession of the ball must not go to the ground at the tackle or near to it unless tackled by an opposition player.
Sanction: Penalty kick

(g) Any player who first gains possession of the ball at the tackle or near to it may be tackled by an opposition player providing that player does so from behind the ball and from directly behind the tackled player or the tackler closest to that player’s goal line.
Sanction: Penalty kick 

(h) After a tackle, any player lying on the ground must not prevent an opponent from getting possession of the ball.
Sanction: Penalty kick 

(i) After a tackle, any player on the ground must not tackle an opponent or try to tackle an opponent.
Sanction: Penalty kick

(j) When a tackled player reaches out to ground the ball on or over the goal line to score a try, an opponent may pull the ball from the player’s possession, but must not kick or attempt to kick the ball.
Sanction: Penalty kick

15.7 FORBIDDEN PRACTICES

(a) No player may prevent the tackled player from passing the ball.
Sanction: Penalty kick 

(b) No player may prevent the tackled player from releasing the ball and getting up or moving away from it.
Sanction: Penalty kick 

(c) No player may fall on or over the players lying on the ground after a tackle with the ball between or near to them.
Sanction: Penalty kick 

(d) Players on their feet must not charge or obstruct an opponent who is not near the ball.
Sanction: Penalty kick 

(e) Danger may arise if a tackled player fails to release the ball or move away from it immediately, or if that player is prevented from so doing. If either of these happens the referee awards a penalty kick immediately.
Sanction: Penalty kick

15.8 DOUBT ABOUT FAILURE TO COMPLY

If the ball becomes unplayable at a tackle and there is doubt about which player did not conform to Law, the referee orders a scrum immediately with the throw-in by the team that was moving forward prior to the stoppage or, if no team was moving forward, by the attacking team.

In most games, there's usually a few mini-breaks which come as a result of players "not held" so the focus is on the tackler to make sure the tackled stays tackled to prevent these. If refs blow too quickly, then there will be more of these situations. And if they don't, then you have the ball wrapped up by the tackler. It's not an easy situation.

I'm not even sure the players know the rules with breakdowns and simply do whatever the hell they want and stop when the ref tells them to. Should a ref even be saying things like "you, hands off!" in the first place? If it's illegal, then blow for it. If it happens too much, card for it. Players will soon stop when they're 15 points and one man down and their team is losing on a regular basis. The ref is more like a coach at times, trying to teach the players what's legal or not. And so then the interpretation of the particular ref comes into play and this is why we have no consistency and refs who think they're the most important person on the pitch because, quite simply, they are.