Agree with everyone, this is a silly requirement...especially the fact that it only applies to EVs. I walk the streets in New York City almost daily, and sometimes I imagine what it would be like if all the cars made no sound (engine sounds...not much you can do about the honking!), it would be a lot more quiet! We shouldn't go backwards and add more sound to our environment.
The best solution to this alleged "problem" that I have seen (heard) is on the Chevy Volt. There is a function on the steering column (maybe part of the wiper stalk) that allows the driver to make a brief "chirp" outside the car. It's much less obtrusive than using the horn, but it gets the point across to unaware pedestrians. I've scared the crap out of a few people in parking garages that don't hear me behind them (never mind they've decided to walk down the middle of the lane), and a manually activated chirp would've been a nice alternative. I would imagine Tesla could build this in as an automatic function as well when the car detects someone nearby or in front of the car.