Not all people with ‘super powers’ are heroes or villains. The population of Mutants/Mutates is broken down in approximately equal thirds.
People with a high level of ‘super powers’. Not all are Heroes or Villains, some are scientists, detectives etc.
People with noticeable/usable, ‘super powers’ that are not necessarily at the ‘Hero’ level.
People with minor ‘super powers’ or who’s ‘super powers’ bring them up to normal levels (a cook who never burns herself or a clumsy person who’s improved dexterity bring them up to ‘normal’ levels)
Astro City seems to have come up with something similar, but we always figured it was just plain common sense.