If the ref had stuck to the letter of the law the game would have finished with 8 players against 10... at most ... and that would have been a disaster for the sport. The Dutch knew this and took advantage of it, and they are the only ones to blame for the problem, not FIFA (for once), nor the ref or the Spanish.
Bloody blame culture today looking for all outs.... the blame simply goes to the person (team in this case) committing the violence in the first place.