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Chiefly because file-sharing itself isn't illegal... you can create something entirely original, and share it with the world. It's when you share someone else's property, against their wishes, that you get in trouble. So the file-sharing software manufacturers aren't held responsible, any more than a gun manufacturer is held responsible for your shooting someone.
The situation really is similar to the broadcast taping situation: Sure, it's legal to tape broadcast music and/or programs for personal use. It's when you try to repackage and sell them that has always been the legality-breaker. The only difference is, the software used to break DRM is considered illegal to use (though no one is called on it until they make a DRM-broken file available to others, costing the rights owner money). So, the law now has a tool to declare you in violation, even if you haven't physically given the file to anyone.
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