I believe that the noisemaker is intended to help the blind, who have to rely on hearing to locate cars. If someone unaware suddenly steps out in front of one's car, even an alert driver might not be able to avoid a collision.
As for EVs making enough noise at slow speeds without the noisemaker, some of us have had the experience of following a pedestrian in a parking lot who was completely unaware of our presence. Much as I prefer my quiet car, at least when the AC isn't roaring(!), I can see the point of the low-speed noisemaker.